Logical Basis and Pathways for Antitrust Regulation of Privacy in Data-driven Merger and Acquisition
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摘要: 数字经济时代下,数据资产日益成为平台形成竞争优势的关键要素。因此,平台企业的合并多以获取数据资源及占据数据优势为主要商业目的。在数据驱动型的经营者集中频发而反垄断法的适用受制于传统的价格导向时,集中行为中的非价格竞争维度愈发受到学界重视。当前,在互联网免费经济模式下,数据资源与竞争行为建立了内生逻辑联系。然而,数据驱动型并购中的限制竞争行为却基于这一联系严重威胁消费者隐私安全,例如企业调整隐私政策导致隐私保护水平降低、企业建筑数据壁垒对用户实施歧视行为等。可见,反垄断法关注隐私威胁并不是对反垄断法规内在机理的颠覆,而是在新环境下丰富市场规制与消费者权益保护的层次,将隐私保护视为反垄断审查的新型非价格竞争因素合理且必要。关于在反垄断框架下如何认定隐私因素,欧盟的实务裁判结果与美国、日本的官方态度均具有借鉴意义。现代化社会面临的问题日趋复杂,在通过精细化分工制定专门法的同时,也需要部门法的共同着力。针对隐私与集中行为的交叉,我国于2022年8月1日起正式施行的新修《反垄断法》并未作出明确回应,在今后的立法与司法工作中应对此予以重视。在反垄断立法与解释上,应当革新消费者福利的内涵,明晰审查隐私的前提条件,并与其他部门法建立科学的衔接关系。在司法实务上,反垄断执法机构则可以考虑采取确定隐私评估基准、引入SSNDPP(小而显著的非暂时性隐私保护水平下降)等分析范式、设计配套监管方案等措施。可见,反垄断法与隐私保护的融通并非简单的制度拼接,而是数字经济时代下多层保护机制的现代交汇。
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关键词:
- 隐私保护 /
- 反垄断法 /
- 数据驱动型经营者集中 /
- 非价格竞争因素
Abstract: In the era of digital economy, data resources are increasingly becoming key elements for platforms to form competitive advantages. Therefore, most of the mergers of platform companies are aimed at acquiring data resources and obtaining data advantages. The concentration of data-driven operators is becoming more and more common, but there are limitations to the application of the traditional price-oriented theory of antitrust law. Accordingly, the non-price factors in the concentration behavior are gaining more and more attention from educational circles. Currently, under the free business model, data resources are logically linked to competitive behavior. However, restrictive competitive behaviors in data-driven mergers and acquisitions threaten consumers’ privacy security, such as companies adjusting their privacy policies resulting in the reduction of the level of privacy protection, and enterprises building data barriers to discriminate against users, and so on. Thus, the regulation of privacy issues by antitrust law is not a subversion of antitrust law, but rather a more comprehensive protection of consumer rights. In other words, it is reasonable and necessary to consider the level of privacy protection as a new type of non-price competitive factor for antitrust review. The judicial decisions of the EU and the official attitudes of the US and Japan are of interest in the determination of privacy effects under the antitrust framework. The problems faced by modern society are becoming increasingly complex, and while special laws are developed through a refined division of labor, department laws also need to work together to maintain market order and protect the rights and interests of consumers. In the face of the intersection of privacy and concentration control of operators, China’s newly revised anti-monopoly law, which came into force on August 1, 2022, does not provide a clear response. Therefore, more attention should be paid to this in future legislative and judicial work. In the legislation, we should innovate the connotation of consumer welfare, clarify the prerequisites for reviewing privacy, and establish scientific articulation with other laws. In practice, antitrust enforcement agencies need to establish benchmarks for privacy assessment, introduce analytical paradigms such as SSNDPP, and design supporting regulatory programs. It can be seen that the integration of antitrust law and privacy protection is not a simple institutional splicing, but a modern intersection of multiple layers of protection mechanisms in the digital economy. -
表 1 欧盟对于隐私保护水平是否影响数据驱动型并购案件认定的观点变化[20]
时间 案例 欧盟对将隐私问题纳入企业并购反垄断审查经营者集中审查的态度变化 2007年 Google收购
DoubleClick案隐私保护问题首次被提及。但是,本案中欧盟委员会仅从经济角度来考虑合并的可能性,
并未将隐私作为非价格竞争因素加以审查。2014年 Facebook收购
WhatsApp案欧盟委员会承认“隐私和数据安全”是本案中的关键竞争因素。然而,欧盟委员会认为隐私并不属于竞争法规制的范畴,故并未分析收购案在隐私保护上可能产生的消极影响。 2016年 Microsoft收购
LinkedIn案欧盟委员会认为隐私是影响产品或服务质量以及消费者选择结果的重要因素,并且合并双方常在隐私保护水平上展开竞争。最终,欧盟委员会要求Microsoft确保竞争的公平性,保护市场上包括用户隐私政策在内的选择权。 -
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