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Opinions of the CPC Central Committee and the State Council on Establishing a Data Base System to Maximize a Better Role of Data Elements
[Effective]
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中共中央、国务院关于构建数据基础制度更好发挥数据要素作用的意见
[现行有效]
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【法宝引证码】
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| Opinions of the CPC Central Committee and the State Council on Establishing a Data Base System to Maximize a Better Role of Data Elements | | 中共中央、国务院关于构建数据基础制度更好发挥数据要素作用的意见 |
| (December 2, 2022) | | （2022年12月2日） |
| As a new production element, data are the basis of digitalization, networking and intelligentization. They have been rapidly integrated into production, distribution, circulation, consumption and social service management, having profoundly changed the mode of production, lifestyle and social governance method. The establishment of a data base system concerns the overall situation of the development and security of the state. For the purposes of accelerating the establishment of a data base system, fully maximizing China's advantages of massive data scale and rich application scenarios, activating the potentiality of data elements, strengthening, improving and expanding the digital economy, enhancing new drivers of economic development, and forming new competitive advantages of the state, the following opinions are hereby put forward. | | 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，深刻改变着生产方式、生活方式和社会治理方式。数据基础制度建设事关国家发展和安全大局。为加快构建数据基础制度，充分发挥我国海量数据规模和丰富应用场景优势，激活数据要素潜能，做强做优做大数字经济，增强经济发展新动能，构筑国家竞争新优势，现提出如下意见。 |
| I. General requirements | | 一、总体要求 |
| 1. Guiding thought. Under the guidance of the Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, the spirit of the 20th CPC National Congress shall be implemented in an in-depth manner, the new development concept shall be implemented in a complete, accurate and comprehensive manner, the construction of a new development pattern shall be accelerated, reform and innovation and systematic planning shall be adhered to, safeguarding national data security and protecting personal information and trade secrets shall be regarded as the premise, promoting the compliant and efficient circulation and use of data and empowering the real economy shall be regarded as the main line, data property rights, circulation and trading, income distribution, and security governance shall be regarded as the focus, the development of international high-standard digital rules shall be profoundly involved, a data base system that fits the characteristics of data, conforms to the development law of the digital economy, safeguards national data security, and demonstrates the leadership of innovation shall be established, the value of data elements shall be fully realized, and all people shall be urged to share the dividends of the development of the digital economy, to provide strong support for deepening innovation-driven development, promoting high-quality development, and promoting the modernization of China's governance system and governance capacity. | | （一）指导思想。以习近平新时代中国特色社会主义思想为指导，深入贯彻党的二十大精神，完整、准确、全面贯彻新发展理念，加快构建新发展格局，坚持改革创新、系统谋划，以维护国家数据安全、保护个人信息和商业秘密为前提，以促进数据合规高效流通使用、赋能实体经济为主线，以数据产权、流通交易、收益分配、安全治理为重点，深入参与国际高标准数字规则制定，构建适应数据特征、符合数字经济发展规律、保障国家数据安全、彰显创新引领的数据基础制度，充分实现数据要素价值、促进全体人民共享数字经济发展红利，为深化创新驱动、推动高质量发展、推进国家治理体系和治理能力现代化提供有力支撑。 |
| 2. Working principles | | （二）工作原则 |
| —Following the law of development and innovating upon institutional arrangements. The basic laws of data property rights, circulation, trading, use, distribution, governance and security shall be fully understood and grasped, the property rights system and market system conducive to the safe protection, effective utilization and compliant circulation of data shall be explored, market institutions and mechanisms of data elements shall be improved, and improvement shall be realized in practice and development shall be conducted in exploration, to promote the formation of new production relations compatible with digital productivity. | | --遵循发展规律，创新制度安排。充分认识和把握数据产权、流通、交易、使用、分配、治理、安全等基本规律，探索有利于数据安全保护、有效利用、合规流通的产权制度和市场体系，完善数据要素市场体制机制，在实践中完善，在探索中发展，促进形成与数字生产力相适应的新型生产关系。 |
| —Adhering to sharing and co-use to release value dividends. The threshold for market participants to obtain data shall be reasonably lowered, the shareability and inclusiveness of data elements shall be enhanced, innovation, business start-up and creation shall be encouraged, anti-monopoly and anti-unfair competition shall be strengthened, to form a development model featuring compliance with laws and regulations, joint participation, mutual benefit and shared dividends. | | --坚持共享共用，释放价值红利。合理降低市场主体获取数据的门槛，增强数据要素共享性、普惠性，激励创新创业创造，强化反垄断和反不正当竞争，形成依法规范、共同参与、各取所需、共享红利的发展模式。 |
| —Strengthening quality supply and promoting compliant distribution. In line with the development trend of the digital transformation of economy and society, the adjustment and optimization of the supply of data elements shall be improved and the quantity and quality of the supply of data elements shall be improved. A reliable data circulation system shall be established to enhance the availability, credibility, circulation and traceability of data. Dynamic management of the whole process of data circulation shall be realized and the value of data in compliant circulation and use shall be activated. | | --强化优质供给，促进合规流通。顺应经济社会数字化转型发展趋势，推动数据要素供给调整优化，提高数据要素供给数量和质量。建立数据可信流通体系，增强数据的可用、可信、可流通、可追溯水平。实现数据流通全过程动态管理，在合规流通使用中激活数据价值。 |
| —Improving the governance system to ensure safe development. The development and security shall be planned as a whole, the overall national security concept shall be implemented, the construction of a data security system shall be strengthened, security shall be ensured throughout the whole process of data supply, circulation and use, and regulatory bottom lines and red lines shall be specified. Classified and hierarchical data management shall be strengthened, management and release shall be conducted where necessary, various data risks shall be actively and effectively prevented and resolved, and a data element governance structure featuring government supervision and market self-regulation, coordination of rule of law and industrial autonomy, and coordination between domestic and international planning shall be formed. | | --完善治理体系，保障安全发展。统筹发展和安全，贯彻总体国家安全观，强化数据安全保障体系建设，把安全贯穿数据供给、流通、使用全过程，划定监管底线和红线。加强数据分类分级管理，把该管的管住、该放的放开，积极有效防范和化解各种数据风险，形成政府监管与市场自律、法治与行业自治协同、国内与国际统筹的数据要素治理结构。 |
| —Deepening opening-up and cooperation for mutual benefit. The development of international rules on cross-border data flows shall be proactively participated in, and exploration shall be made for joining regional institutional arrangements for cross-border international data flows. Bilateral and multilateral consultations on cross-border data flows shall be promoted, and the establishment of rules and other institutional arrangements for mutual benefit and reciprocity shall be promoted. The exploration of new ways and models for cross-border data flow and cooperation shall be encouraged. | | --深化开放合作，实现互利共赢。积极参与数据跨境流动国际规则制定，探索加入区域性国际数据跨境流动制度安排。推动数据跨境流动双边多边协商，推进建立互利互惠的规则等制度安排。鼓励探索数据跨境流动与合作的新途径新模式。 |
| II. Establishing a data property rights system guaranteeing rights and interests and compliant use | | 二、建立保障权益、合规使用的数据产权制度 |
| Exploration shall be made for establishing a data property rights system, promoting the structural separation and orderly circulation of data property rights, and strengthening the supply of high-quality data elements based on the characteristics of data elements; and under the national classified and hierarchal data protection system, classified and hierarchal data ownership affirmation, authorized use, market-based circulation and trading shall be promoted, the protection system for the rights and interests of data elements shall be improved, and a data property rights system with Chinese characteristics shall be gradually formed. | | 探索建立数据产权制度，推动数据产权结构性分置和有序流通，结合数据要素特性强化高质量数据要素供给；在国家数据分类分级保护制度下，推进数据分类分级确权授权使用和市场化流通交易，健全数据要素权益保护制度，逐步形成具有中国特色的数据产权制度体系。 |
| 3. Exploring the system of structural separation of data property rights. A classified and hierarchal ownership affirmation and authorization system for public data, corporate data and personal data shall be established. According to the characteristics of data sources and data generation, the legal rights enjoyed by each participant in the process of data production, circulation and use shall be defined respectively, and a property right operation mechanism with ownership of data resources , data processing and use rights and data product management rights shall be established to promote a new model of “common use and benefits sharing” of non-public data by a market-oriented method and provide basic system guarantee for activating data element value creation and value realization. New methods of data property registration shall be studied. Under the premise of ensuring security, data processors shall be urged to develop and utilize original data according to laws and regulations, data processors shall be supported in exercising relevant rights of data application according to laws and regulations, the reuse and full utilization of data use value shall be promoted, and the exchange of data use rights and market-oriented circulation of data shall be promoted. The circulation transaction of original data shall be prudently treated. | | （三）探索数据产权结构性分置制度。建立公共数据、企业数据、个人数据的分类分级确权授权制度。根据数据来源和数据生成特征，分别界定数据生产、流通、使用过程中各参与方享有的合法权利，建立数据资源持有权、数据加工使用权、数据产品经营权等分置的产权运行机制，推进非公共数据按市场化方式“共同使用、共享收益”的新模式，为激活数据要素价值创造和价值实现提供基础性制度保障。研究数据产权登记新方式。在保障安全前提下，推动数据处理者依法依规对原始数据进行开发利用，支持数据处理者依法依规行使数据应用相关权利，促进数据使用价值复用与充分利用，促进数据使用权交换和市场化流通。审慎对待原始数据的流转交易行为。 |
| 4. Promoting the implementation of ownership confirmation and authorization mechanism for public data. For public data generated by Party and government organs, enterprises and public institutions at all levels when performing their duties or providing public services in accordance with the law, pooling, sharing, opening and development shall be strengthened, and coordinated and authorized use and management shall be strengthened, to promote interconnectivity and break down “data silos.” Under the premise of protecting personal privacy and ensuring public security, public data shall be encouraged to be provided for the public 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 and invisible.” For public data that do not carry personal information and do not affect public security, the expansion of the scope of supply and use shall be promoted according to the purpose. Free and conditional use of public data for public governance and public welfare shall be promoted, and conditional and compensated use of public data for industrial development and industry development shall be explored. Public data that is kept confidential in accordance with laws and regulations shall not be disclosed, and direct access of original public data that are not disclosed in accordance with laws and regulations to the market shall be strictly controlled, so as to protect the public interest in the supply and use of public data. | | （四）推进实施公共数据确权授权机制。对各级党政机关、企事业单位依法履职或提供公共服务过程中产生的公共数据，加强汇聚共享和开放开发，强化统筹授权使用和管理，推进互联互通，打破“数据孤岛”。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。推动用于公共治理、公益事业的公共数据有条件无偿使用，探索用于产业发展、行业发展的公共数据有条件有偿使用。依法依规予以保密的公共数据不予开放，严格管控未依法依规公开的原始公共数据直接进入市场，保障公共数据供给使用的公共利益。 |
| 5. Promoting the establishment of an ownership confirmation and authorization mechanism for corporate data. For data collected and processed by various market participants in production and business activities that do not involve personal information or public interests, market participants shall enjoy the rights and interests of owning, using and obtaining profits in accordance with laws and regulations, ensure reasonable returns on their labor and contributions of other elements, and strengthen incentives for supply of data elements. Exploration of new modes for authorized use of corporate data shall be encouraged, the leading role of state-owned enterprises shall be maximized, leading enterprises in the industry and enterprises on the Internet platform shall be guided to play a leading role, two-way fair authorization with micro, small and medium-sized enterprises shall be promoted, data shall be jointly and rationally used, and micro, small and medium-sized enterprises shall be empowered to make digital transformation. Third-party institutions and intermediary service organizations shall be supported in strengthening the development of the standards for data collection and quality assessment, promoting the standardization of data products, and developing data analysis and data service industries. Government departments may obtain data of relevant enterprises and institutions in accordance with laws and regulations when performing their duties, but they must agree on and strictly satisfy the requirements for restrictions on use. | | （五）推动建立企业数据确权授权机制。对各类市场主体在生产经营活动中采集加工的不涉及个人信息和公共利益的数据，市场主体享有依法依规持有、使用、获取收益的权益，保障其投入的劳动和其他要素贡献获得合理回报，加强数据要素供给激励。鼓励探索企业数据授权使用新模式，发挥国有企业带头作用，引导行业龙头企业、互联网平台企业发挥带动作用，促进与中小微企业双向公平授权，共同合理使用数据，赋能中小微企业数字化转型。支持第三方机构、中介服务组织加强数据采集和质量评估标准制定，推动数据产品标准化，发展数据分析、数据服务等产业。政府部门履职可依法依规获取相关企业和机构数据，但须约定并严格遵守使用限制要求。 |
| 6. Establishing and improving the ownership confirmation and authorization mechanism for personal information data. For data bearing personal information, data processors shall be encouraged to collect, own, custody and use data according to the scope of personal authorization according to laws and regulations, and the processing activities of personal information shall be standardized. Personal information shall not be excessively collected by “package authorization,” compulsory consent and other means, to promote rational use of personal information. A mechanism under which a trustee represents personal interests and supervises the collection, processing and use of personal information data by market participants shall be explored. The use of special personal information data involving state security may be authorized to relevant entities in accordance with laws and regulations. The protection of personal information shall be intensified, key industries shall be encouraged to establish and improve long-term protection mechanisms, the primary responsibilities of enterprises shall be strengthened, and the collection and use of personal information by enterprises shall be regulated. Technological means shall be innovated upon to promote the anonymous processing of personal information to ensure the information security and personal privacy when using personal information data. | | （六）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。探索由受托者代表个人利益，监督市场主体对个人信息数据进行采集、加工、使用的机制。对涉及国家安全的特殊个人信息数据，可依法依规授权有关单位使用。加大个人信息保护力度，推动重点行业建立完善长效保护机制，强化企业主体责任，规范企业采集使用个人信息行为。创新技术手段，推动个人信息匿名化处理，保障使用个人信息数据时的信息安全和个人隐私。 |
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