政务数据开放运营制度的目标偏离及纠偏

Goal Deviation and Correction in the Governance of Open Government Data Operation Systems

政务数据开放之价值目标,应定位于在公平合理条件下保障多元的市场和社会主体获取和利用公共数据,从而推动政务数据利用的经济、政治效益和社会福利的整体增长。国家应协调政务数据开放的多元价值目标,为社会主体公平利用政务数据提供实质条件,形成一套兼顾多元利益、具有系统性和整体性的开放、运营和管理体制。当前一些地方规定政务数据归政府所有,进而采取“国有资产管理式”策略进行授权运营的做法,缺乏法理层面的依据,在制度功能上也将引发“与民争利”和“地方数据壁垒”的双重负面效果,亟需予以纠偏。政务数据授权运营制度的再建构,需要考虑政务数据开放的价值目标,从而匹配相应的手段选择。应考虑建立“二元授权运营机制”:一是在数据基础设施层面,完善“公私合作履职式”的授权运营模式,避免过度商业导向和政务数据资产化的法律风险,增强政务数据开放的便捷性与数据生态的构建;二是在具体政务数据的管制策略层面,将侧重政务数据资源资产化思路的“国有资产管理式授权运营”,转变为基于风险防控与市场秩序而审慎限定数据利用主体资格的授权运营模式,从而保障政务数据利用的公平竞争,提升政务数据利用的社会效益。

The value objective of opening government data should be to ensure that diverse market and social entities can access and utilize public data under fair and reasonable conditions,so as to promote the economic and political benefits of the use of government data and the overall growth of social welfare.The state should coordinate the multiple value goals of government data openness,providing substantive conditions for social entities to make fair use of government data and establishing a set of openness,operation and management systems that take into account multiple interests and are systematic and holistic.At present,some places stipulate that government data belong to the government,and then adopt the"state-owned assets management"strategy to authorise the operation.This practice lacks a legal basis,and in terms of system function,it will also lead to the double negative effects of"competing with the people for profits"and"local data barriers",which need to be corrected urgently.The reconstruction of the authorized operation system for government data requires aligning with the value objectives of government data openness,thus matching appropriate means of implementation.A"binary authorized operation mechanism"should be established.First of all,at the level of data infrastructure,the authorised operation model of"public-private cooperation in performing duties"should be improved to avoid legal risks of excessive commercial orientation and the assetisation of government data,enhancing the convenience of opening up government data and the construction of a data ecosystem.Secondly,in terms of specific government data management strategies,the"state-owned asset management-type authorised operation"model focusing on the idea of assetization of data resources should be transformed into an authorised operation model that prudently restricts qualifications of data utilisation subjects based on risk prevention and control and market order,ensuring fair competition in the use of government data and enhancing the social benefits of the use of government data.