从赋权到规制：公共数据商业化利用的竞争法进路

From Empowerment to Regulation: A Competition Law Approach to the Commercial Use of Public Data

摘要: 公共数据商业化利用的核心难题在于如何平衡激励机制与公共价值共享。赋权路径因数据非竞争性与公共属性而缺乏效率，与数据共享的立法目的存在内在张力。2025年《反不正当竞争法》第十三条第3款增设了“数据保护专款”，标志着监管范式由权利赋权转向行为规制，其规范重心在于维护公平自由的竞争秩序，而非确立新型私权。基于此，应以“主营市场–附属市场”结构为框架，审慎判断数据再利用行为是否构成对原经营者主营业务的实质性替代，并在此基础上协调反垄断法、电子商务法等规范，实现公共数据开放利用与公平竞争之间的动态平衡。

Abstract: The core challenge in commercial utilization of public data lies in balancing incentive mechanisms and public value sharing. The rights-endowment approach is inefficient due to data’s non-rivalry and public attributes, creating intrinsic tension with data sharing’s legislative purpose. The 2025 dedicated data fund marks a regulatory paradigm shift from rights-based empowerment to conduct-based regulation, focusing on fair and free competition rather than new private rights. Thus, the “primary-ancillary market” framework should be used to assess whether data reuse substantially substitutes the original operator’s core business, coordinating relevant regulations to achieve dynamic equilibrium between open public data utilization and fair competition.