2022年上半年，中国宣布正式启动“东数西算”工程，在京津冀、长三角、粤港澳大湾区、成渝、内蒙古、贵州、甘肃、宁夏等8地启动建设国家算力枢纽节点，密集部署推动新型基础设施的建设。此次工程的建设为相关企业带来了投资机会，但同时，企业也应该注意投资过程中伴随的法律问题。
东数西算工程预计未来每年将带动4000亿元与数据中心、云计算等相关的投资。该工程是中国“十四五”数字经济发展规划下的一条路径，是中国“十四五”数字经济规划下建设数字经济基础设施的重要内容。
“在东数西算工程下可能出现新的投资机会，一个是数据中心或者数据平台的建设，另一个是对于加密传输网络传输效率、传输安全相关的基础设施的建设。另外还有对算法模型、算法技术的研发。”
- 邹丹莉，通商律师事务所
“在大的概念之下，东数西算也是从环保和节能的政策基础上提出。” 通商律师事务所合伙人邹丹莉律师告诉ALB，“目前政策主要涉及到的西部区域，有贵州、甘肃、内蒙古、宁夏，其主要原因是资源禀赋的优势，包括清洁能源及气候。
“在东数西算工程下，可能出现新的投资机会，一个是数据中心或者数据平台的建设，另一个是对于加密传输网络传输效率、传输安全相关的基础设施的建设。另外，还有对算法模型、算法技术的研发。” 邹丹莉律师说。
宁人律师事务所合伙人马军律师告诉ALB, 此次工程带来的投资机会主要包括三方面。
一是将会对数据中心上游服务器、操作系统、磁盘存储、数据库等服务商带来新的投资机会，因为大规模机柜、机电等投资会带动对上游供应链企业的需求；二是大规模数据中心的运营会对电力能源产生较大的需求，间接会对新能源电力产生较大的投资需求，从而带来投资机遇；三是对于数据中心运营商和第三方软件或增值服务商带来新的机遇，从国际云计算发展规律来看，未来云上SaaS需求潜力巨大，未来更多的机构会瞄准SaaS服务，SaaS服务也将会成为数据中心投资的新增长点。
“东数西算工程的核心目标在于对数据中心进行集约化、规模化建设，提高资源和能源的利用效率，加强跨部门、跨区域、跨层级的数据流通与治理，促进跨领域协同创新和数据智能应用，提升算力和数据安全防护水平。 基于这些因素，在新基建领域，预计相关地区数据中心、通信网络建设与服务、能源供给、相关设备制造、人工智能、云计算等行业和领域将得到较大的发展空间，可能会出现一些新的投资机会。” 安杰律师事务所科技、数据保护及网络安全业务的合伙人杨洪泉律师补充道。
目前，中国发改委等有关部门已完成对8个国家算力枢纽节点的布局，并围绕这些国家算力枢纽节点规划了10个国家数据中心集群。
“东数西算项目一定程度上会带动西部数据中心基建发展，但主要刺激还是在长三角、京津冀、大湾区地区。整个东数西算政策布局仍然以经济发达地区为主，国家定位西部云计算也仅是一些存储、低延时的需求。”
- 马军，宁人律师事务所
杨洪泉律师认为：“东数西算工程将首先带动这些算力枢纽节点及数据中心集群所覆盖的地区的新基建投资和发展。同时随着东数西算工程不断推进，上述国家算力枢纽节点、国家数据中心集群所辐射到的周边地区的新基建产业也将逐步受到积极影响。”
东数西算项目一定程度上会带动西部数据中心基建发展，但马军律师认为，主要刺激还是在长三角、京津冀、大湾区地区。
“因为整个东数西算政策布局仍然以经济发达地区为主，国家定位西部云计算也仅是一些存储、低延时的需求，而东部仍然是处理实时性、高效率客户需求的主阵地。大量的需求仍然在经济发达地区，西部的需求还是较少，客户潜意识认为西部地区只能处理一些简单存储、低延时的需求，实际上西部云计算资源完全可以满足东部对算力的需求。” 马军律师说。
需关注问题
杨洪泉律师认为，考虑到东数西算工程将涉及大量数据中心搭建、信息通信网络技术设施建设及相关服务，相关电信资质将会成为新基建投资中需要重点关注的问题。其他相关领域会涉及一些市场准入和政府许可问题，也需要关注。
“考虑到东数西算工程将涉及大量数据中心搭建、信息通信网络技术设施建设及相关服务，相关电信资质将会成为新基建投资中需要重点关注的问题。市场准入和政府许可问题也需要关注。”
- 杨洪泉，安杰律师事务所
“此外，东数西算工程中将涉及大量、多场景的数据传输、共享、利用等数据处理活动，投资中也会遇到诸多网络安全、数据和个人信息保护合规相关的问题和挑战，并且可能会涉及到关键信息基础设施安全、重要数据保护等涉及国家安全和社会公共利益的重点事项。”杨洪泉律师说。
数据中心基建的法律服务是一项综合性服务，需要多个团队配合才能完成，涉及到的法律领域包括建设工程、云计算、数据合规、投融资等。马军律师认为数据中心法律服务的挑战在于交易模式和合作协议设计、谈判，交易模式决定了数据中心的运营管理，决定了各方的角色定位。数据中心的合作主要以运营商为中心，一般采用运营商轻资产、合作方重资产投资的合作模式。
“在该模式下，主要挑战来自两方面：一是如何平衡重资产投资与融资需求；二是在轻资产模式下，如何平衡运营商的风险诉求与投入冲突。” 马军律师说道。
邹丹莉律师认为，在基础设施建设的过程中，可能会涉及到与地方政府相关项目的审批投资问题，或者跟政府投资相关的法律问题。
“另外还会遇到环保问题。由于东数西算的大前提是绿色能源，所以在建设的过程中，相关的环境保护评估与考核，也是需要关注的问题。” 邹丹莉律师说。
杨洪泉律师认为，律所需要持续关注相关政策及法律法规的变化和更新，及时识别新的法律风险与监管趋势变化，协助有关企业确保投资活动、企业运营管理的合法合规，创造和维护健康、稳定的投资环境。
马军律师表示，律所在投资、建设、运营数据中心过程中，会为客户提供全面、专业的法律服务，包括尽职调查、交易方案设计、交易文件起草、谈判、交割、项目融资及境内外上市、数据合规、云计算运营法律服务等。
数据和网络是东数西算工程的基础与核心要素，在创新数据流通模式，推动跨地区、跨部门智能化发展的过程中，难免会遇到各种网络安全与数据合规方面的问题。
“根据以往经验，网络安全等级保护、数据分类分级、个人信息流转、网络和数据安全事件应对等方面的问题会更为常见一些。”杨洪泉律师说。
同时，杨洪泉律师认为，考虑到东数西算工程规模大、行业和地域跨度广、网络和通信依赖程度高等特性，相关企业和机构也可能遇到关键信息基础设施保护、网络安全审查、重要数据保护等较为复杂的问题。
“为更好地应对此类问题，相关企业和机构可以提前明确自身业务布局，实时梳理和记录网络使用、数据处理的活动，采取相应的技术措施，制定和完善内部网络安全、数据安全相关的各项政策、制度，并制定专门的负责人或负责部门，以积极状态应对网络安全及数据合规方面的挑战。” 杨洪泉律师说。
马军律师认为，“数据中心建设过程中涉及到的网络安全及数据合规问题主要是数据中心的网络安全等级定级、围绕网络安全定级所需要的管理架构设计和制度建设，另外就是云服务过程中对日常合作数据合规与网络安全服务。数据中心的建设与运维都离不开网络安全，而网络安全与数据合规的服务也要根据数据中心建设运营的模式不同而设计不同的合规主体、合规内容，不能千篇一律，都采用的是一种合规方式。”
邹丹莉律师说道，在整个东数西算的新基建过程中，也会涉及到数据传输相关的法律问题，而《数据安全法》和《网络安全法》都对企业处理数据行为安全性提出了合规要求，也对网络设施和网络的产品或者服务的安全性提出了要求。
“从参与企业的角度讲，由于数据也包括个人信息，所以核心的问题是履行个保法、网安法向下的对于相关的网络运营安全、数据安全和个人信息保护安全方面的合规要求，比如但不限于网络安全等级保护，内部管理机制的规范和完备，安全相关的软硬件设施的配置。” 邹丹莉律师说。
邹律师继续说道：“再者，此过程中涉及了个人信息保护和数据权益的保护。‘东数西算’过程中涉及到数据处理活动，就会涉及到具体的数据处理活动在个人信息保护法下是否符合个人信息保护的规范，如果涉及到非个人信息，又分为例如国家的政务数据、经营性的数据。从企业的角度，需要做好数据权属或者是数据来源链条的梳理，然后去界定数据使用的边界，避免利用所谓的数据处理活动去侵犯他人的权益。”
律所新机遇
马军律师认为，此次东数西算将会给律所带来投融资、建设工程、网络安全与数据合规领域新的机遇，对于云计算法律服务不仅是新的机遇，也将成为律所未来必不可少的日常服务。
东数西算工程将为相关地区的工程建设、硬件制造、软件开发、信息通信服务、能源供给、网络安全、人工智能技术应用等多个不同领域和市场带来新的发展机遇和动力。在相关政策和有关主管部门的重点关注下，相关市场的发展同时也会促进相关法律咨询服务需求的增长。
杨洪泉律师认为，在这些领域已有丰富经验积累的律师事务所将有可能获得更多的业务机会，当然，新的律师事务所也可借此机会，尝试进军新的地区、新的业务领域，在进一步开拓市场的同时推动律所业务多元化发展。
“在数字经济的大的背景之下，市场多了一种全新的经济方式，甚至说是一种生活方式。在传统的法律法规的规范之上，这种情况之下必然伴随着法规的更新或者迭代，或是新的法规的出现。” 邹丹莉律师说道。
DIGITAL DEVELOPMENT
In the first half of 2022, China officially launched the Eastern Data and Western Computing project, which will deploy and build computing hubs in eight regions to promote the development of digital infrastructure. The project is expected to bring investment opportunities for companies, but these come with legal issues that have to be considered.
In February this year, China approved the project of constructing eight national computing hubs and 10 national data centre clusters, aimed at completing the overall layout of the country's integrated big data centre system. Known as the Eastern Data and Western Computing project, it falls under the 14th Five Year Plan for building a digital economy.
The eight regions targeted by this new national policy include the Jingjinji Metropolitan Region, the Yangtze Delta, the Guangdong-Hong Kong-Macao Greater Bay Area, the Chengdu-Chongqing Economic Circle, Inner Mongolia, Guizhou, Gansu, and Ningxia. It is estimated that the project will generate about 400 billion yuan in investment capital for data centres and cloud computing.
- Zou Danli, Commerce & Finance Law Offices
“In the bigger picture, the project is based on the policy of environmental protection and energy-saving,” says Zou Danli, a partner at Commerce & Finance Law Offices. “Currently, the Western areas that have been involved in the project include Guizhou, Gansu, Inner Mongolia, and Ningxia, mainly due to their abundant resources such as clean energy and the climate.”
“The project may bring new investment opportunities. One is the launch of data centres or platforms. The other would be the construction of secure transmission which involves efficacy and security. There are also algorithm models and technologies,” adds Zou.
Ma Jun, a partner at Yinchuan-based Ning Ren Law Firm, says the project will generate investment in three areas. First, service providers such as upstream servers, operating systems, disk storage, and databases will see new opportunities as large-scale investment in electromechanical technology will increase demand for upstream supplies. Second, electricity is needed for data centres to operate, which allows for potential investments in new energy.
Third, it will bring new opportunities for data centre operators and third-party software or value-added service providers. The experience of international cloud computing development suggests there is enormous potential demand for software as a service (SaaS) in the future. The SaaS sector should see increased investment.
Yang Hongquan, a partner at AnJie Law Firm, says that the project will carry out the intensive and large-scale construction of data centres and improve efficiency in the utilization of resources and energy. “It strengthens the collaboration on data management across different departments and regions. It aims to promote cross-region innovation and data application and improve computing power and data security. So, some sectors in the field of infrastructure will develop a lot, including data centres, communication networks and services, energy supply, equipment manufacturing, artificial intelligence, and cloud computing,” says Yang.
So far, China has completed the layout of eight computing hubs and has a plan to set up 10 data centre computing clusters.
- Ma Jun, Ning Ren Law Firm
“The project will drive the infrastructure investment and development in places that are covered by the hubs and clusters. With the development of the eight computing hubs, infrastructure in places near the hubs will also be impacted,” says Yang.
To a certain extent, the project will drive the development of data centre infrastructure in the west. But Ma believes the Yangtze Delta, the Jingjinji Metropolitan Region, and the Greater Bay Area will reap the most benefits.
“The project still focuses on economically developed regions. The western area just plays the role of data storage, while the eastern part is responsible for real-time and high-efficiency data processing. The eastern regions still see more demand for data management than the western areas as customers subconsciously believe that the western region can only deal with storage and low-latency issues. Actually, cloud computing resources in the west can fully meet the computing power requirements of the east,” says Ma.
KEY LEGAL ISSUES
Considering that the project will involve data centre construction, information and communication network technology facilities construction, Yang believes telecommunication system qualifications will become an issue that needs attention in infrastructure investment. Other issues such as market access and government licensing also require consideration.
- Yang Hongquan, AnJie Law Firm
“In addition, the project will involve a large number of multi-scenario data transmission, sharing, and utilization. Companies will also meet challenges of cybersecurity, data compliance, and personal information protection in investment. It may also involve issues related to national security and public interests,” says Yang.
The legal service for data centre infrastructure is comprehensive and requires team collaboration. This includes construction engineering, cloud computing, data compliance, investment and financing. Ma believes that the challenges for data centre legal services come from the transaction model and the design of collaboration agreements. The transaction model determines the operation and management of the data centre and the roles of all parties. The collaboration of data centres is mainly centred on the operators. Usually, the operators adopt an asset-light strategy while the partner focuses on heavy asset investment.
“Under this model, there are mainly two challenges. One is how to balance investment and financing of the heavy assets. The other is how to balance the operator's risk and investment under the light-asset model,” says Ma.
Zou believes that in the process of infrastructure construction, companies may encounter issues of investment approvals for local government-related projects.
“Environmental protection is another issue. Since the premise of the project is green energy, the evaluation and assessment of environmental protection also need to be kept in mind during the infrastructure construction,” says Zou.
Yang thinks that law firms need to keep an eye on the changes in relevant policies and regulations to identify new legal risks and regulatory changes timely. Then, they can help firms ensure the legal compliance of investment activities and enterprise operation and management, as well as create and maintain a healthy and stable investment environment.
Ma says that law firm will provide clients with comprehensive legal services for the investment, construction, and operations of data centres. It includes due diligence, transaction plan design, transaction document drafting, negotiation, delivery, project financing and marketing at home and abroad, data compliance, and legal services for cloud computing.
Data and networks are the foundation of the project. It is inevitable that cybersecurity data compliance issues will be encountered in the process of data transmission and promoting intelligent collaboration between different departments and regions.
“According to our experience, chances are that companies will meet issues such as the level grading of cybersecurity, data classification, personal information transmission, and response mechanism to network and data security incidents,” says Yang.
The large-scale project involves many industries and different regions and relies heavily on networks and communications. In view of this, companies may also have complex issues related to critical information infrastructure protection, cybersecurity review, and important data protection.
“In order to better deal with such issues, companies can clarify their own business in advance, sort out and record network usage and data processing activities in real-time. They can also take technical measures and take measures for internal network security and data security. They can also set up a department to deal with cybersecurity and data compliance,” says Yang.
“The cybersecurity and data compliance issues in the construction of data centres are mainly on cybersecurity grading, which requires the management structure design and system formulation. It also involves data compliance and cybersecurity in cloud service,” says Ma. “I think that the construction, operation and maintenance of data centres are inseparable from cybersecurity. Meanwhile, the cybersecurity and data compliance services also need to be customized according to different data centres.”
Zou points out that some legal issues related to data transmission will pop out in the process of infrastructure construction. Both the Data Security Law and the Cybersecurity Law regulate companies’ data processing activities, as well as the security of network facilities and network products and services.
“For companies involved in the project, they need to comply with the Personal Information Protection Law and the Cybersecurity Law which regulate network operation security, data security and personal information protection security. They include hierarchical protection on cybersecurity, the normalization of internal management, and security-related hardware and software facilities. Companies need to pay attention to this,” says Zou.
“In addition, this project involves personal information and data protection. When processing personal information, companies should comply with the Personal Information Protection Law. If they are involved with non-personal information which includes government data and operational data, companies need to sort out the data ownership or data source chain. It is good to clarify the boundaries of data use to prevent the data processing activities from infringing on the rights and interests of others,” Zou adds.
NEW OPPORTUNITIES
Ma believes that this project will bring new opportunities for law firms in the fields of investment and financing, construction projects, cybersecurity and data compliance. Regarding legal services for cloud computing, it will become a new opportunity as well as a daily service in the future.
The project will bring new opportunities for fields such as engineering construction, hardware manufacturing, software development, information and communication services, energy supply, cybersecurity, and artificial intelligence. With the government’s stimulus policies, the development of markets will also create a need for legal consulting services.
Yang believes that experienced law firms in these fields will gain more business chances. Meanwhile, fresh law firms can also try to expand to new fields via these projects to diversify their business.
Zou feels that under the digital economy, China can expect to see a new economic model, or even a new lifestyle. “This will lead to the update or iteration of laws, or the emergence of new regulations.”