政府数据授权运营:内涵界定、行政许可属性与规制方式

Authorized Operation of Government Data: Definition of Connotation, Attributes of Administrative Licensing, and Regulatory Methods

政府数据授权运营是释放数据红利、推动数据经济发展的重要方式。基于实践中的运营机理与相关解释,政府数据授权运营的内涵可界定为以安全可控为前提,以释放政府数据经济价值为目的,政府授权具有专业能力和安全保障条件的市场主体,对受限开发数据进行开发利用,生成数据产品和数据服务的活动。从治理逻辑来看,安全可控原则是授权运营的前提,公共利益优先原则为授权运营的价值导向,公私合作是授权运营的开展基础。从法律属性来看,政府数据授权运营具有“禁止性”前提,是对政府数据享有管理权的各级政府代表国家向个人或组织让渡财产权利的行为,有典型的行政许可属性。从规制方式来看,由于政府数据的特殊性,政府数据授权运营协议难以归属于国有资源使用权出让协议、特许经营协议等传统行政协议,宜将认定为授权运营协议认定为新型行政协议进行规制。

Government data authorization operations are important ways to release data dividends and promote the development of data economy. Based on the operating mechanism and related interpretation in practice, the connotation of government data authorization operation can be defined as the release of government data economic value, premise of security and controlling, and the government has authorized market entities with professional capabilities and security guarantees. Data are developed and utilized to generate data products and data services. From the perspective of governance logic, the principle of security and controlling is the prerequisite for authorization operations. The principle of priority of public interest is the value orientation of authorization operations. Public and private cooperation is the foundation for the development of authorization operations. From the perspective of legal attributes, government data authorization operations have the prerequisite for “prohibition”. It is a typical administrative license attributed to individuals or organizations that governments at all levels have management rights to transfer government or organizations to individuals or organizations. From the point of regulation way, due to the particularity of government data, government authorized data operation agreement to belong to state-owned resources use right transfer agreement, franchise agreements and other traditional administrative agreement, should be identified as authorized operating agreement as the new administrative reg-ulation.