政府数据作为数据生产理论下的“公共数据产品”，其开放是数字人权保障的题中之义，更是数据要素市场化的现实要求。明确政府开放数据的内涵、外延与归属，是构建其流动秩序的重要基础。政府开放数据是政府数据的子集，且只能是非个人数据，按照政府角色的不同，可将其进一步划分为行政公开数据和政府生产数据。相关归属争议的厘清和流动秩序的构建，核心就在于对政府角色的判断：对于前者，政府仅为数据披露者，其中的公共数据资产，任何人均可公开使用，而非公共数据资产也可以协定或法定的方式开放使用；对于后者，政府为受托代理人，宜采取知识许可协议的方式开放，让各界可以免于侵权风险、最大化地对数据进行多元应用。
As a “public data product” under the theory of data production，the opining of data is the meaning of digital human rights protection，and it is also a practical requirement for the marketization of data elements. Clarifying the connotation，extension，and ownership of the data opining of government is an important foundation for constructing its flow order. Government open data is a subset of government data and can only be non-personal data. According to the different roles of the government，it can be further divided into administrative open data and government production data. The core of the clarification of relevant ownership disputes and the construction of the flow order lies in the judgment of the government’s role：for the former，the government is only the data discloser，and any public data assets can be used publicly，and non-public data assets can also be negotiated. Or open to use in a statutory way；for the latter，the government is the entrusted agent，and it is advisable to adopt a knowledge licensing agreement to open it，so that all walks of life can avoid the risk of infringement and maximize the diversified application of data.
