个人金融数据跨境流动的治理研究
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作者:
作者单位:

上海对外经贸大学 法学院,上海 201620

作者简介:

范思博,法学博士,上海对外经贸大学法学院讲师,硕士研究生导师,Email:fansibo@suibe.edu.cn。

通讯作者:

中图分类号:

D913

基金项目:

国家社会科学基金重大项目“数字网络空间的知识产权治理体系研究”(19ZDA164)


Research on the governance of personal financial data cross-border flow
Author:
Affiliation:

Law School, Shanghai University of International Business and Economics, Shanghai 201620,P.R.China

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    摘要:

    相较于其他数据,金融数据具有天然的保密性要求。随着金融市场国际化与金融数据信息化,金融数据跨境流动成为常态,在此过程中数据的利用与隐私安全问题也逐渐突出,传统的隐私规则难以覆盖跨境需求。在法律层面,《数据安全法》初步确立数据跨境基础框架,《个人信息保护法》引入GDPR理念规范个人信息跨境;但在规章层面,中国人民银行与国家网信等部门的规则并存,存在监管思路不一,概念界定模糊,规则冲突及分级分类标准与跨境规则脱钩等问题。核心问题在于:首先,过度强调安全导致“原则上禁止”思路抑制数据价值释放与市场活力;其次,央行、网信、证监等多监管部门规则重叠冲突增加合规难度;再次,现有数据分级未有效关联跨境条件;最后,未区分跨境业务需求,境外监管要求未进行差异化规制。欧盟和美国是个人数据保护不同模式的代表,对比两大保护体系,能更清晰地认清我国规制的现状和问题:欧盟以GDPR为核心,通过充分性认定、标准合同条款(SCC)及有约束力的公司规则(BCRs)建立严格而复杂的跨境框架,虽未特设金融数据规则但整体要求极高;美国则采取分领域立法与行业自律结合模式,在金融领域有《金融服务现代化法案》等具体规则,并积极利用自由贸易协定破除壁垒,推动数据自由流动,促进数据向美国聚集。为解决个人金融数据跨境流动难的问题,可以从以下几个路径着手:第一,转变监管理念,从“原则禁止”转向“原则允许”,在守住安全底线基础上承认数据要素价值及跨境流动的全球性;第二,统一协调监管,强化部门协作以消除规则冲突与真空,覆盖新型金融机构;第三,关联分级分类与跨境规则,依据数据敏感度或重要性设定差异化的出境条件与评估要求;第四,区分流动目的制定规则,对业务需求类流动细化“必要性”标准、建立高效安全评估流程,并基于对等原则谈判构建国际互认机制及发展标准合同。最终通过上述措施协调契约法、组织法、监管规则,构建既能保障安全与主权,又能促进金融市场国际化、释放数据价值并提升国际规则话语权的治理体系。

    Abstract:

    Compared to other types of data, financial data inherently demands higher confidentiality. With the internationalization of financial markets and the digitization of financial data, cross-border flows of financial data have become commonplace. However, this process has increasingly highlighted issues concerning data utilization and privacy security, as traditional privacy regulations struggle to address cross-border requirements. At the legal level in China, the Data Security Law has preliminarily established a foundational framework for cross-border data transfers, while the Personal Information Protection Law incorporates GDPR-inspired principles to regulate the cross-border flow of personal information. However, at the regulatory level, overlapping rules from the People’s Bank of China (PBC), the Cyberspace Administration of China (CAC), and other authorities coexist, leading to inconsistencies in regulatory approaches, ambiguous definitions, conflicting rules, and a disconnect between data classification standards and cross-border regulations. The core issues are as follows: First, an excessive emphasis on security has resulted in a prohibited in principle approach, stifling the release of data value and market vitality. Second, overlapping and conflicting regulations from multiple regulators—such as the PBC, CAC, and China Securities Regulatory Commission (CSRC)—increase compliance difficulties. Third, existing data classification systems fail to effectively link to cross-border conditions. Finally, there is a lack of differentiation in cross-border business needs, and foreign regulatory requirements are not addressed with tailored rules. The EU and the U.S. represent two distinct models of personal data protection. Comparing these two systems can provide clearer insights into China’s regulatory challenges: The EU, centered on the GDPR, has established a stringent and complex cross-border framework through adequacy decisions, standard contractual clauses (SCCs), and binding corporate rules (BCRs). While it lacks specific financial data rules, its overall requirements are exceptionally high. The U.S. adopts a sectoral legislation and industry self-regulation model. In finance, laws like the Gramm-Leach-Bliley Act provide specific rules, while free trade agreements are leveraged to dismantle barriers, facilitate data flows, and attract data to the U.S. To address the difficulties in cross-border personal financial data flows, the following pathways can be explored: Firstly, shift regulatory philosophy from prohibited in principle to permitted in principle, recognizing the value of data as a factor of production and the global nature of cross-border flows while maintaining security baselines. Secondly, harmonize regulatory oversight, enhancing interdepartmental coordination to eliminate rule conflicts and gaps, ensuring coverage of emerging financial institutions. Thirdly, align data classification with cross-border rules, setting differentiated transfer conditions and assessment requirements based on data sensitivity or criticality. Fourthly, differentiate rules by flow purpose: refining necessity standards for business-driven flows, establishing efficient security assessment procedures, and negotiating mutual recognition mechanisms and standard contracts based on reciprocity. Ultimately, through these measures, contract law, organizational law, and regulatory frameworks can be coordinated to construct a governance system that safeguards security and sovereignty while promoting financial market internationalization, unlocking data value, and strengthening influence in global rule-making.

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范思博.个人金融数据跨境流动的治理研究[J].重庆大学学报社会科学版,2025,31(4):236-250. DOI:10.11835/j. issn.1008-5831. fx.2021.07.005

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