数字经济驱动视角下我国省级数据要素政策量化分析

A Quantitative Analysis of China’s Provincial Data Element Policies from the Perspective of the Digital Economy

摘要: 数字经济高质量发展以数据要素的有效供给与高效配置为核心支撑。本文以政策工具理论与数据价值链理论为分析框架，系统收集2020~2025年全国31个省级政府及职能部门颁布的873份数据要素政策文本，构建“政策工具–数据价值链”二维分析矩阵，运用内容分析法对省级数据要素政策的工具结构与价值链覆盖进行量化测度与横向比较。研究发现：当前省级数据要素政策工具结构呈现显著的“制度优先、激励缺失”特征，环境型工具占比逾半，需求型工具严重不足，制约了数字经济市场主体参与数据要素流通的积极性；政策资源在数据价值链上高度集中于流通与交易环节，采集登记与存储加工等前端环节长期处于政策真空，数字经济所依赖的数据质量底座存在制度性风险；省际政策分化与数字经济发展水平高度耦合，数字经济先发地区政策工具更趋多元，欠发达地区则以基础建设和规则建立为主导。基于上述发现，本文从政策工具结构优化、价值链前端政策补强、执行保障机制健全及差异化省际施策四个维度提出政策优化路径，为推进数字经济治理体系现代化提供参考。

Abstract: High-quality development of the digital economy fundamentally depends on effective supply and efficient allocation of data factors. Based on the theoretical frameworks of policy instruments and data value chain, this study systematically collects 873 data factor policy documents issued by 31 provincial-level governments and their departments from 2020 to 2025, constructs a two-dimensional analytical matrix of “policy instruments vs. data value chain,” and employs content analysis to quantitatively measure and compare the tool structure and value chain coverage of provincial data factor policies. The findings reveal three key issues: the current structure of provincial-level data element policy instrument structure exhibits a pronounced “institution-first, incentive-absent” pattern, with environmental instruments accounting for over half of all provisions while demand-side instruments are severely underrepresented, constraining market actors’ motivation to participate in data circulation in the digital economy; policy resources are heavily concentrated in the circulation and transaction segment of the data value chain, while upstream segments such as collection, registration, and storage remain in a policy vacuum, posing systemic risks to the data quality foundations on which the digital economy depends; The divergence of policies among provinces is highly coupled with the level of development of the digital economy. The policy instruments of the more developed regions in the digital economy are more diversified, while the less developed regions are mainly focused on infrastructure construction and rule-making, with more advanced regions deploying more diverse instrument combinations. Based on these findings, this study proposes optimization pathways across four dimensions—restructuring policy instrument composition, strengthening upstream value chain policy, improving implementation mechanisms, and adopting differentiated provincial strategies—to provide evidence-based reference for advancing the modernization of digital economy governance.