公共数据整体性治理的组织法进路——基于国家数据局的展开

An Organisational Law Approach to the Holistic Governance of Public Data:Based on the National Data Administration

当前中国公共数据治理“碎片化”特征严重,究其原因是组织之间不协同、组织职权部门化以及运作机制之间不衔接。对此,数据治理制度需进行整体性治理改革,从而提高治理效能。整体性治理改革的关键词是“整合”,而行政组织法的视角恰能为其供给有力的合法性支撑,并为之提供组织整合、职权集合和机制统一的改革思路。首先,可以将国家数据局设置为数据治理的专门机关与最高机关,在组织层面上构建自上而下的、统一的数据局组织体系;其次,加强数据局的数据管理权与立法职权等,实现权力与责任的相对集中;最后,统一财政机制与人事机制,使数据治理中的技术化运作趋于一致。

The current“fragmented”nature of public data governance in China is due to the lack of synergy between organisations,the sectoralisation of organisational functions and powers and the lack of convergence between operational mechanisms.To improve the effectiveness of national data governance,it is necessary to carry out holistic governance reform.The key word for holistic governance reform is“integration”,and the perspective of administrative organisation law can provide strong legitimacy for it,as well as ideas for organisational integration,aggregation of powers and unification of mechanisms.Firstly,the National Data Administration can be set up as a special organ and the highest organ of data governance,and a top-down and unified organisational system of the Data Administration can be constructed at the organisational level;Secondly,the Data Administration's power of data management and legislative power can be strengthened,so as to realise a relative concentration of power and responsibility;Lastly,the financial and personnel mechanisms should be unified,so as to make the technological operation of the data governance more consistent.