暨南学报(哲学社会科学版)

作者：靳海婷

单位：湖北大学法学院。

关键词：公共数据授权运营,法律属性,双阶理论

基金：湖北省社会科学基金后期项目“我国暂行法的立法研究”(HBSKJJ20243168);中国法学会自选课题“论民族区域协同立法差异构造的正当性及其限制”(CLS2024D44)。

公共数据授权运营借助公私协作方式实现公共数据开放利用目标,是实现公共数据治理的创新之举。但该制度兼具维护公益的行政主导和主张自由协商的私法自治的内容,在公私分立的理论传统影响下,学界对其法律属性存在诸多分歧观点,直接影响着公共数据授权运营的制度展开和功能发挥。为从整体上把握公共数据授权运营法律属性,急需破除非公即私的理论藩篱。遵循公私协作的价值理念,以德国双阶理论为分析工具,将公共数据授权运营分解为公法属性的第一阶段和混合属性的第二阶段的双阶法律构造,从整体上把握公共数据授权运营的法律属性。按照不同阶段体现的公、私属性,构建对应的权力(权利)配置、监督以及救济制度,以激发公共数据授权运营中公私协作动力,增强公共数据开放利用的效果。"/>template{display:none;}.mag-rich-xref-fn { cursor: pointer;}//长视频$(document).ready(function(){if($("#showLongArticleVideo") && $("#showLongArticleVideo").length && $("#showLongArticleVideo").length>0){mag_ajax_update({ele_id:'showLongArticleVideo',url:mag_currentQikanUrl() + "/CN/article/showLongArticleVideo.do?id="+$("#articleId").val()});}});$(document).ready(function(){window.metaData = {"journal":{"issn":"1000-5072","qiKanMingCheng_CN":"暨南学报（哲学社会科学版）","id":2,"qiKanMingCheng_EN":"Jinan Journal"},"fundList_cn":["湖北省社会科学基金后期项目“我国暂行法的立法研究”(HBSKJJ20243168);中国法学会自选课题“论民族区域协同立法差异构造的正当性及其限制”(CLS2024D44)。"],"article":{"keywordList_cn":["公共数据授权运营","法律属性","双阶理论"],"juan":"47","zhaiyao_cn":"公共数据授权运营借助公私协作方式实现公共数据开放利用目标,是实现公共数据治理的创新之举。但该制度兼具维护公益的行政主导和主张自由协商的私法自治的内容,在公私分立的理论传统影响下,学界对其法律属性存在诸多分歧观点,直接影响着公共数据授权运营的制度展开和功能发挥。为从整体上把握公共数据授权运营法律属性,急需破除非公即私的理论藩篱。遵循公私协作的价值理念,以德国双阶理论为分析工具,将公共数据授权运营分解为公法属性的第一阶段和混合属性的第二阶段的双阶法律构造,从整体上把握公共数据授权运营的法律属性。按照不同阶段体现的公、私属性,构建对应的权力(权利)配置、监督以及救济制度,以激发公共数据授权运营中公私协作动力,增强公共数据开放利用的效果。","endNoteUrl_en":"https://jnxb.jnu.edu.cn/skb/EN/article/getTxtFile.do?fileType=EndNote&id=7229","reference":"","bibtexUrl_cn":"https://jnxb.jnu.edu.cn/skb/CN/article/getTxtFile.do?fileType=BibTeX&id=7229","abstractUrl_en":"https://jnxb.jnu.edu.cn/skb/EN/10.11778/j.jnxb.20242264","qi":"5","id":7229,"nian":2025,"bianHao":"1752550978596-777473793","zuoZheEn_L":"JIN Haiting","juanUrl_en":"https://jnxb.jnu.edu.cn/skb/EN/Y2025","shouCiFaBuRiQi":"2025-07-15","qiShiYe":"68","qiUrl_cn":"https://jnxb.jnu.edu.cn/skb/CN/Y2025/V47/I5","lanMu_cn":"数字治理","pdfSize":"1514","zuoZhe_CN":"靳海婷","risUrl_cn":"https://jnxb.jnu.edu.cn/skb/CN/article/getTxtFile.do?fileType=Ris&id=7229","title_cn":"双阶理论视域下公共数据授权运营的法律属性及制度展开","doi":"10.11778/j.jnxb.20242264","jieShuYe":"85","keywordList_en":["the authorization operation of public data","legal nature","two-step theory"],"endNoteUrl_cn":"https://jnxb.jnu.edu.cn/skb/CN/article/getTxtFile.do?fileType=EndNote&id=7229","zhaiyao_en":"Central documents such as the 14th Five-Year Plan attach great importance to the authorization operation of public data, viewing it as a key factor in the construction of an integrated data market. The authorization operation of public data, as an innovative system for open utilization of public data, is a process in which the government uses the market to release the value of data elements and provide public services under the public-private partnership model. This system combines administrative leadership and private law autonomy. Under the influence of the conventional theory of separation of public and private, there are one-sided views in academia on its legal attributes, such as the private law attribute view and the public law attribute view. Even mixed attribute viewpoints have the problem of incomplete argumentation. Legal attributes are a prerequisite for institutional construction. If the legal attributes cannot be accurately grasped, it will directly affect the institutional construction of the authorization operation of public data. Therefore, it is necessary to grasp the legal attributes of the authorization operation of public data as a whole based on breaking the traditional theory of non-public or private. Following the value concept of public-private collaboration in the authorization operation of public data, this paper uses the German two-step theory as an analytical tool, divides the legal relationship of public-private mixture into two interrelated but different stages, and adopts different rules of nature to regulate it. Based on the doubts about the German two-step theory and the characteristics of the authorization operation of public data, the German two-step theory is revised and applied. It decomposes the authorization operation of public data into a two-stage legal structure consisting of the first stage with public law attributes and the second stage with mixed attributes. It constructs specific systems based on the public and private attributes at different stage. Research conclusions of this paper are as follows. In the allocation of power (rights), it is necessary to achieve a balance between empowerment and control. The first stage is to clarify the government's public data allocation authority and strengthen the government's responsibilities. In the second stage, it is necessary to standardize the exercise of administrative power and impose appropriate public law mandatory norms on the operating entities. In terms of supervision, it is necessary to establish a multi-subject co-governance model. The first stage focuses on handling the relationship between administrative supervision and market competition; the second stage is to build a trust-based collaborative supervision relationship between public and private entities. In terms of relief, it is necessary to break through the path dependence of a single attribute. In the first stage, we can establish a full-process administrative relief framework; in the second stage, we need to clarify the selection and application of civil and administrative remedies. The Innovation and policy implications are as follows. It uses the German two-step theory to analyze the legal attributes of public data authorization operations. Firstly, it introduces the German two-step theory into the analysis of the authorization operation of public data, expanding the application scope of the two-step theory and proving its adaptability. Secondly, by using a stage decomposition approach, the legal attributes of different stages become singular, simplifying the understanding of the mixed legal attributes of the authorization operation of public data, and facilitating subsequent institutional construction and policy promotion. Thirdly, the general understanding obtained from the analysis of the authorization operation of public data from the perspective of the two-step theory has a radiating effect on research on other open utilization public-private partnership systems of public data.","bibtexUrl_en":"https://jnxb.jnu.edu.cn/skb/EN/article/getTxtFile.do?fileType=BibTeX&id=7229","abstractUrl_cn":"https://jnxb.jnu.edu.cn/skb/CN/10.11778/j.jnxb.20242264","zuoZheCn_L":"靳海婷","juanUrl_cn":"https://jnxb.jnu.edu.cn/skb/CN/Y2025","lanMu_en":"","qiUrl_en":"https://jnxb.jnu.edu.cn/skb/EN/Y2025/V47/I5","zuoZhe_EN":"JIN Haiting","risUrl_en":"https://jnxb.jnu.edu.cn/skb/EN/article/getTxtFile.do?fileType=Ris&id=7229","title_en":"Legal Nature and Institutional Design of the Authorization Operation of Public Data Based on the Two-step Theory","hasPdf":"true"},"authorNotes_cn":["靳海婷,湖北大学法学院。"]};if(window.metaData && (!window.metaData.authorNotesCommon_cn && !window.metaData.authorNotesCorresp_cn && window.metaData.authorNotes_cn)){window.metaData.authorNotesCommon_cn = window.metaData.authorNotes_cn;}if(window.metaData && (!window.metaData.authorNotesCommon_en && !window.metaData.authorNotesCorresp_en && window.metaData.authorNotes_en)){window.metaData.authorNotesCommon_en = window.metaData.authorNotes_en;}var _nlmdtdXml = $("#article_nlmdtdXml").val();var magDir = _nlmdtdXml.replace(/\/[^\/]+$/,'');window.metaData.magDir = magDir;new mag_vue({ el: '#metaVue', //dataUrl: mag_currentQikanUrl() + '/EN/article/getRichHtmlJson.do?articleId='+$("#articleId").val(), data:window.metaData, loading:true, doTextFun:function(text){ return doDataJsonText(text); 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来源：2025年第5期

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