数据作为新型生产要素，是数字化、网络化、智能化的基础，已快速融入生产、分配、流通、消费和社会服务管理等各环节。近日，国务院印发《关于构建数据基础制度更好发挥数据要素作用的意见》（下称《意见》），为充分发挥我国海量数据规模优势、激活数据要素潜能提供了制度保障。
多位专家在接受人民网采访时称，“数据二十条”作为首部从生产要素高度部署数据要素价值释放的国家级专项政策文件，以基础制度的规范破解了数据要素价值释放的多个难题。特别是探索建立保障权益、合规使用的数据产权制度，将促成新的市场竞争机制形成，数据产品与服务的质量大幅提升。
一、数据产权“三权分置” 上下游竞合关系或将改变
《意见》提出，探索数据产权结构性分置制度，建立数据资源持有权、数据加工使用权、数据产品经营权“三权分置”的数据产权制度框架。
“三权分置”具体指什么？国家发改委数字经济研究发展中心主任白京羽介绍，建立数据“三权分置”的产权运行机制，主要是从打破僵局的角度出发，尝试通过强化数据加工使用权，放活数据产品经营权，为实现审慎对待原始数据流转、鼓励数据开发利用、引导数据产品交易、释放数据要素价值奠定制度基础。
“三权分置将改变数据流上下游主体之间的竞合关系。”中国人民大学信息资源管理学院副教授朝乐门表示，在新竞合关系的影响下，部分数据资源的持有者将自己业务范围拓展至数据加工使用和数据产品经营，会出现“一个主体多种角色”的现象。另一方面，更多新的数据加工使用者和数据产品经营者将会涌现，开创数据要素市场的“多个主体一种角色”新局面。这种新的市场竞争机制将有助于数据产品与服务的质量得到大幅提升。
朝乐门表示，“三权分置”的产权运行机制或将给个人、企业和政府部门带来新机遇。例如，对个人而言，新的就业机会和就业技能要求出现，数据科学家、数据产品设计师、大数据分析师、算法工程师、AI训练师等新岗位将会受到重视；对企业主体而言，会出现新的商业机会和投资方向；对于政府部门而言，会出现新的治理需求及服务内容。
二、保护个人隐私和公共安全前提下加大数据供给
根据国家工信安全发展研究中心测算数据，2021年我国数据要素市场规模达到815亿元，预计“十四五”期间市场规模复合增速将超过25%。
《意见》提出，鼓励公共数据在保护个人隐私和确保公共安全的前提下，按照“原始数据不出域、数据可用不可见”的要求，以模型、核验等产品和服务等形式向社会提供，对不承载个人信息和不影响公共安全的公共数据，推动按用途加大供给使用范围。
中国信息通信研究院院长余晓晖认为，中国数据资源丰富，但真正开放、共享和使用的数据量很小。《意见》针对公共数据，明确授权运营；针对企业数据，强化供给激励。引导行业龙头企业、互联网平台企业与中小微企业双向授权，赋能中小企业数字化转型。这些制度设计将极大地提升数据供给。
加大数据供给的前提之一是保护个人隐私。当前，不少人都在下载使用APP时遇到过“不授权就不给用”的问题。朝乐门举例说，用户在打开APP使用到一些功能时，部分APP强制收集的个人信息或系统权限不是其正常运行或实现相关功能必须要用到的，比如影音类APP强制索要位置权限，游戏类APP读取联系人权限等。
针对此类现象，《意见》提出建立健全个人信息数据确权授权机制。对承载个人信息的数据，推动数据处理者按照个人授权范围依法依规采集、持有、托管和使用数据，规范对个人信息的处理活动，不得采取“一揽子授权”、强制同意等方式过度收集个人信息，促进个人信息合理利用。
三、明确权益分配 数据产品前景明朗
《意见》还提及，建立健全数据要素各参与方合法权益保护制度。在保护公共利益、数据安全、数据来源者合法权益的前提下，承认和保护依照法律规定或合同约定获取的数据加工使用权，尊重数据采集、加工等数据处理者的劳动和其他要素贡献，充分保障数据处理者使用数据和获得收益的权利。
“《意见》出台之前，由于权益分配的政策与风险尚不明确，数据要素市场的多数主体处于‘观望’状态，不敢主动‘进场’交易。”朝乐门表示，《意见》的出台在激发数据要素开发利用的积极性以及推动各参与主体进场交易等方面有显著意义。在基于数据要素市场的新生态系统中，多数参与主体既是数据的使用者，又是数据的生产者。数据要素市场的参与主体之间的权益关系的均衡是一种多重快速迭代的动态博弈过程。对于任何一类主体权益的过度保护或忽视，都会影响整个数据生态系统的运行效果，最终也会限制那些受保护的主体本身的权益。
“数据产品是《意见》的一大亮点。”朝乐门认为，向数据产品的转移将会是传统产品创新的下一个风口，数据产品的大力开发利用会带来新的经济增长点和创新支撑点。数据产品是一种不仅限于数据形态、用数据赋能的产品。它的研发需要遵循“三分数据、七分加工、十二分体验”原则。数据固然重要，但数据加工更为必要，而提高用户体验是数据产品研发的最终目的。
翻译：
As a new factor of production, data is the basis of digitalization, networking and intelligence. And it has been rapidly integrated into production, distribution, circulation, consumption and social service management. Recently, The State Council issued the Opinions on Building a Data Foundation System to Better Play the Role of Data Elements (hereinafter referred to as the Opinions), which provides an institutional guarantee for giving full play to the advantages of massive data scale and activating the potential of data elements.
Several experts said in an interview with People’s Daily Online that “Article 20 of Data”. As the first national special policy document to deploy data factor value release from the height of production factors, cracked a number of problems in data factor value release with the standard of the basic system. In particular, exploring the establishment of a data property rights system that protects rights and interests and complies with the use of data will facilitate the formation of a new market competition mechanism and significantly improve the quality of data products and services.
Data property rights “three rights separation” upstream and downstream competition and cooperation relationship may change
“Opinions” proposed to explore the structural data property rights separation system, and establish a data property rights system framework of data resources holding rights, data processing rights, data product management rights.
What does “separation of the three powers” specifically mean?
Bai Jingyu, director of the Digital Economy Research and Development Center of the National Development and Reform Commission. He introduced that the establishment of the property right operation mechanism of “three rights separation” of data is mainly from the perspective of breaking the deadlock, trying to strengthen the right to use data processing, and activate the right to use data products. It lays an institutional foundation for prudently treating the flow of raw data, encouraging the development and utilization of data, guiding the trade of data products and releasing the value of data elements.
“The separation of the three rights will change the competition and cooperation relationship. Between the upstream and downstream bodies of the data stream.” Chao Lemen, associate professor of the School of Information Resource Management at Renmin University of China. He said that under the influence of the new competition and cooperation relationship. Some holders of data resources will expand their business scope to data processing and use and data product management. And there will be a phenomenon of “one subject and multiple roles”. On the other hand. More new data processing users and data product operators will emerge, creating a new situation of “multiple subjects and one role” in the data factor market. This new market competition mechanism will help improve the quality of data products and services significantly.
Asakarmen said the “three rights separation” property rights operation mechanism may bring new opportunities to individuals, enterprises and government departments. For example, for individuals, new job opportunities and employability skills requirements will emerge. And new positions such as data scientists, data product designers, big data analysts, algorithm engineers. AI trainers will be emphasized; For enterprises, there will be new business opportunities and investment directions; For government departments, there will be new governance requirements and service content.
Increase data supply under the premise of protecting personal privacy and public safety
According to the calculated data of the National Industry Information Security Development Research Center. The market size of Chinese data elements will reach 81.5 billion yuan in 2021, and it is expected that the compound growth rate of the market size will exceed 25% during the “14th Five-Year Plan” period.
According to the Guidelines, on the premise of protecting personal privacy and ensuring public safety, public data should be encouraged to be provided to the society in the form of products and services. Such as models and verification, in accordance with the requirements of “keeping original data within the domain and making data available invisible”. Public data that does not carry personal information and does not affect public security should be promoted to expand the scope of supply and use according to purposes.
Yu Xiaohui, president of the China Academy of Information and Communications Technology. He believes that China is rich in data resources. But the amount of data that is really open, shared and used is small. “Opinions” for public data, clearly authorized operation; Strengthen supply incentives for enterprise data. Guide industry leading enterprises, Internet platform enterprises and micro, small and medium-sized enterprises two-way authorization, enabling small and medium-sized enterprises digital transformation. These institutional designs will greatly improve the data supply.
One of the preconditions for greater access to data is the protection of personal privacy.
At present, many people have encountered the problem of “no authorization, no use” when downloading and using apps. For example, when a user opens an APP to use some functions. Some of the personal information or system permissions that the APP forcibly collects are not necessary for its normal operation or the implementation of relevant functions. For example, video and audio apps force location permissions and game apps read contact permissions.
In response to this phenomenon, the Opinions proposed to establish and improve the personal information data authorization mechanism. For data bearing personal information. Data processors shall be encouraged to collect, hold, custody and use data according to the scope of personal authorization according to law and regulations. And the processing activities of personal information shall be standardized. Excessive collection of personal information by means of “package authorization” or compulsory consent shall not be adopted, so as to promote rational use of personal information.
Clear equity distribution data products have a bright future
The guidelines also mentioned the establishment of a sound system to protect the legitimate rights and interests of all participants in data elements. Under the premise of protecting public interests. Data security and legitimate rights and interests of data sources. The right to use data processing obtained in accordance with laws or contract provisions is recognized and protected. And the labor and other factor contributions of data processors such as data collection and processing are respected. So as to fully protect the rights of data processors to use data and obtain benefits.
“Before the release of the Opinions. Most subjects in the data element market were in a ‘wait-and-see’ state and did not dare to ‘enter’ trading actively because of the unclear policies and risks of equity distribution.”
According to the company
According to the company, the introduction of the Opinions has significant significance in stimulating the enthusiasm of the development and utilization of data elements as well as promoting the transaction of all participants. In the new ecosystem based on data factor markets, most participants are both users and producers of data. The equilibrium of equity relationship among participants in data factor market is a dynamic game process of multiple fast iteration. Excessive protection or neglect of the rights and interests of any kind of subject will affect the operation effect of the whole data ecosystem, and eventually limit the rights and interests of those protected subjects themselves.
“Data products are a big highlight of Opinion.” According to Chao, the transfer to data products will be the next outlet of traditional product innovation. And the vigorous development and utilization of data products will bring new economic growth points and innovation support points. Data product is a kind of product that is not limited to the form of data and enables with data. Its research and development needs to follow the principle of “three points of data, seven points of processing, twelve points of experience”. Data is important. But data processing is more necessary, and improving user experience is the ultimate goal of data product development.
文章来源：http://finance.people.com.cn/n1/2023/0106/c1004-32601274.html
本文由数字化转型网（www.szhzxw.cn）转载而成，来源：人民网；作者：人民网王绍绍、实习生施懿芝；编辑/翻译：数字化转型网宁檬树；审核：数字化转型网默然。
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