“Data is a new important factor of production after land, labor, capital, and technology. To consolidate the foundation for constructing Digital China, we must also facilitate the grand circulation of data resources…”
“Digital China Construction Series (Lesson 3 of 13): “Facilitate the Grand Circulation of Data Resources,” Beijing Party Member Education Network, April 11, 2025
On April 11, 2025, the Beijing Party Member Education Network released a remarkable 13-lesson educational series on China’s national digital strategy, Digital China. Designed as a foundational introduction, the course targets Party cadre and members and is intended to raise awareness, elevate political understanding, and standardize implementation.
Lesson Three explains the central role of data in building Digital China. The lesson also makes its central point unmistakably clear: Digital China‘s long-term objective is to establish a national data governance system.
National Data Governance System
At the forefront of the Digital China strategy is the Party’s commitment to build the world’s first nationally unified system for the governance of data, a system that will integrate applications, institutions, rules, and standards to comprehensively manage big data and its intelligent application. Yet despite this ambition, challenges persist. The top-level design remains fragmented, and efforts at unified management are hindered by overlapping responsibilities and departmental silos. The long-term objective is to establish a centralized, standardized, and efficiently coordinated national data governance system.
Data as the Newest Factor of Production
A concrete signal of the Party’s new view on data came in April 2020. At that time, the central government formally revised core elements of Marxist theory, both historical materialism and the labor theory of value, by designating data as a new factor of production, and the key factor of production in a digital economy, surpassing labor. This reinterpretation provided the Marxist rationale for elevating the digital economy, considered the most dynamic component of the Five Sphere Integrated Plan, as the Party’s primary laboratory for data-driven development and innovation. The successes from this approach would be shared across all five spheres (economic, social, political, cultural, and ecological), and as evidenced elsewhere, across military and civilian domains.
A Series Roadmap
If you are new to Digital China, you may want to begin with my overview of the strategy and a shortlist of key concepts that cadre are expected to master. Both will help you navigate the lessons.
Let’s continue the series with Lesson Three:
Each lesson’s web address is linked to its original Chinese-language title. Note: Some of these links may have security certificate issues. For your safety, I’ve also embedded a clean, archived copy of each video in the corresponding post. You can choose which version to view, but I recommend using the archived copy for a safer experience.
“Digital China Construction Series 3/13: “Facilitate the Grand Circulation of Data Resources” (数字中国建设系列之三：畅通数据资源大循环), Beijing Party Member Education Network (北京党员教育网, April 11, 2025
Archived Video
Speaker: Beijing Guoheng Zhilin Cultural Communication Co., Ltd. (北京国恒智林文化传播有限公司)
Length: 10:30
Synopsis: Data is a new important factor of production after land, labor, capital, and technology. To consolidate the foundation for constructing Digital China, we must also facilitate the grand circulation of data resources, remove obstacles to the transfer and utilization of data, enable it to flow at high speed and be reasonably utilized in the information “aorta,” and promote the effective release of the value of data elements.
简介：数据是继土地、劳动力、资本、技术之后新的重要生产要素。夯实数字中国建设基础，还要畅通数据资源大循环，破除数据流转利用的障碍，使其在信息“大动脉”中高速流动、合理利用，推动数据要素价值有效释放。
Terminology shortlist with footnoted definitions: factor of production1 (生产要素), grand circulation of data resources2 (数据资源大循环), information “aorta”3 (信息大动脉), data element4 (数据要素).
Video Transcript and Translation:
Terminology shortlist and other key terms are highlighted in blue.
00:27
Digital Infrastructure and the Data Resource System are the two major foundations of Digital China. To consolidate the foundation of Digital China construction, in addition to opening up the aorta of digital infrastructure, we must also facilitate the grand circulation of data resources and promote the effective release of the value of data elements. Data is often compared to oil in the digital economy era and is a new type factor of production.
数字基础设施和数据资源体系是数字中国的两大基础，夯实数字中国建设基础，除了要打通数字基础设施大动脉 ，还要畅通数据资源大循环，推动数据要素价值有效释放。数据常常被比作数字经济时代的石油，是一种新型生产要素。
00:53
In April 2020, the Central Committee and the State Council announced the Opinions on Improving the Systems and Mechanisms for Market-based Allocation of Factors of Production, and data was written into official documents as a factor of production for the first time. Taking data as a new important factor of production after land, labor, capital, and technology is an inevitable requirement for the development of the digital economy.
2020年4月，中共中央、国务院关于构建更加完善的要素市场化配置体制机制的意见公布，数据首次作为一种生产要素被写入官方文件。把数据作为继土地、劳动力、资本、技术之后新的重要生产要素，是数字经济发展的必然要求。
01:19
First, the explosive growth and large-scale circulation and application of data have driven the continuous expansion of infrastructure, stimulating the upgrading of digital consumption in terms of quality and efficiency. It has promoted the acceleration and expansion of digital industries and industrial digitalization, spawned new technologies, new products, new formats and new models, and helped optimize the industrial chain and enhance competitiveness.
首先，数据的爆炸式增长和大规模流通应用，推动基础设施规模持续增长，激发数字消费提质增效。促进数字产业和产业数字化提速放量，催生出新技术、新产品、新业态、新模式，并有助于产业链优化和竞争力提升。
01:43
Second, the efficient use of data elements can overcome information barriers in resource allocation. With production and sales advancing in tandem, and supply and demand mutually reinforcing each other, this facilitates the effective use of both domestic and international markets and resources.
其次，数据要素的高效利用可以克服资源配置中的信息壁垒，产销并进，供需互促，有利于用好国内国际两个市场，两种资源。
01:56
Third, data has special characteristics that are completely different from traditional factors of production. It can be shared, infinitely replicated at very low cost, and reused without loss. It can grow and supply infinitely, which breaks the constraints of traditional factors of production on economic growth. Subsequently, data is widely used in various public service scenarios, which can improve the accessibility, inclusiveness, and equality of public services and promote sharing of the fruits of economic development by more people.
再次，数据具有与传统生产要素截然不同的特点，可共享，可以极低成本无限复制，可重复使用且不产生损耗。可无限增长与供给，这些都打破了传统生产要素对经济增长的制约。随后，数据大量应用于各类公共服务场景，可以提升公共服务的可及性、普惠性、均等性，促进经济发展的成果为更多人所共享。
02:31
To give fully leverage the core role of data, it is essential to eliminate the barriers to data transfer and utilization, facilitate the grand circulation of data, and enable its high speed flow through the information aorta, and ensure its rational use. A key focus is to solve the problem of “one body and two wings”. “One body” means optimizing the management system and its mechanisms. “Two wings” refers to advancing the full release of data element value in two ways: creating and utilizing public data, and releasing the value of commercial data.
要充分发挥数据的核心要素作用，就必须破除数据流转利用的障碍，畅通数据大循环，使其在信息大动脉中高速流动，合理利用。这其中要重点解决”一体两翼”的问题。”一体”即管理体制机制优化。”两翼”是指从公共数据打造利用，商业数据价值释放两方面，推动数据要素价值充分释放。
03:03
First, we need to optimize the management system and mechanisms. We need to build a national data management system and mechanisms to improve data coordination and management at organization at all levels. Our country attaches great importance to the construction of data management systems and mechanisms. In December 2022, the Central Committee and the State Council issued Opinions on Building Basic Systems for Data and Better Facilitating the Role of Data Elements.
一是管理体制机制优化，要构建国家数据管理体制机制，健全各级数据统筹管理机构。我国高度重视数据管理体制机制建设。2022年12月，中共中央、国务院关于构建数据基础制度更好发挥数据要素作用的意见印发。
03:28
It proposed to build basic data systems in areas such as data property rights, circulation and transaction, income distribution, security and governance, and initially form the “Four Beams and Eight Pillars” of our basic systems for data. This document is also known as the “Twenty Data Measures” (aka Twenty Measures for Data) and is our country’s first basic document specifically for data elements. In February 2023, the Central Committee and State Council issued the “Plan for the Global Layout of Digital China” which pointed out that it is necessary to open up the aorta of digital infrastructure and facilitate the grand circulation of data resources.
提出要从数据产权、流通交易、收益分配、安全治理等方面构建数据基础制度，初步形成我国数据基础制度的”四梁八柱。” 这份文件又被称为”数据二十条，” 是我国首份专门针对数据要素的基础性文件。2023年2月，中共中央、国务院”数字中国建设整体布局规划”指出，要打通数字基础设施大动脉 ，畅通数据资源大循环。
04:03
In March, the National Data Administration was approved for establishment, and the development of our country’s data element supervision and governance system entered a new stage. Prior to this, many places across the country had already actively explored data operations and supervision. The Guangdong Provincial Big Data Administration, established in February 2014, was a “pioneer” in local exploration.
3月，国家数据局获准组建，我国数据要素监管治理体系发展进入新阶段。在此之前，全国多个地方已经在数据运营和监管方面进行了积极探索。2014年2月成立的广东省大数据管理局是地方探索的”先行者。”
04:29
As of March 2023, 19 provinces, autonomous regions, and directly-administered municipalities have established provincial-level big data management departments. However, due to the lack of top-down unified management and top-level design, there are few measures to form consensus and institutionalize data management. In addition, the institutional settings, affiliations, and development models for big data management in various places are different, and data management has fallen into the awkward state of departmental fragmentation and overlapping policies.
截至2023年3月，已有19个省、自治区、直辖市成立了省级层面的大数据管理部门。然而由于缺乏自上而下的统一管理和顶层设计，在数据管理方面形成共识并加以制度化的措施不多。加之各地大数据管理的机构设置、隶属关系和发展模式不同，数据管理陷入各自为政和政出多门的尴尬。
05:00
On this basis, the establishment of the National Data Administration is conducive to advancing the planning and design of the data element market, exploring trading mechanisms, and building governance rules. It will eliminate “information islands” and “data chimneys” and truly establish a Government Data Governance Organization and Management System with unified standards, top-down coordination, and efficient operation.
在此基础上，国家数据局的组建有利于推进数据要素市场规划设计、交易机制探索和治理规则构建。消除”信息孤岛、” “数据烟囱，” 真正建立标准统一、上下协同、运行高效的政府数据治理组织管理体系。
05:19
Second is the creation and utilization of public data. We should advance the aggregation and utilization of public data and build national data resource repositories in important fields such as public health, science and technology, and education.
二是公共数据打造利用，要推动公共数据汇聚利用，建设公共卫生、科技、教育等重要领域国家数据资源库。
05:35
Public data refers to public management and service organizations, including government departments, public welfare units, and public utilities such as water supply, electricity supply, gas supply, and public transportation. The various types of data and their derivative data collected and generated in the course of lawfully performing duties or providing public services mainly fall into two categories: government data and public service data.
公共数据是指公共管理和服务机构，包括政务部门、公益事业单位以及供水、供电、供气、公共交通等公用企业。在依法履行职责或者提供公共服务过程中收集产生的各类数据及其衍生数据，主要有政务数据和公共服务数据两大类。
06:01
Public data is an important component of high-quality and high-value data. At present, our country’s data supply continues to expand, but the supply of high-quality and high-value data is insufficient. Public data is often difficult to circulate and share due to its high sensitivity. In our country’s data element structure, government data and public service data account for 60%.
公共数据是高质量、高价值数据的重要组成部分。当下我国数据供给持续扩大，但高质量、高价值的数据却供给不足。公共数据往往因其高敏感性而难以流通共享。在我国数据要素结构中，政务数据和公共服务数据占比达60%。
06:26
Enterprise and personal data only account for about 38% and 2% respectively. There is a large amount of dormant data in government services, education, medical care, transportation, energy and other fields. As the largest owner of public data, the government generally has problems such as low data integration, sharing, and openness. If data can be fully developed and utilized, it will play a greater role in element value and further promote data circulation on a wider scale.
企业和个人数据分别只占约38%和2%。政务服务、教育、医疗、交通、能源等领域存在大量沉睡数据 。而政府作为公共数据的最大拥有者 普遍存在数据整合度、共享度、开放度低等问题。如果数据能得到充分开发利用，将会发挥更大的要素价值，进一步带动更大范围的数据流通。
06:58
At the beginning of 2022, the State Council issued the “14th Five-Year Plan for Development of the Digital Economy.” It emphasizes the need to establish and improve the national public data resource system, coordinate the development and utilization of public data resources, promote the safe and orderly development of basic public data, build an open national public data platform with dedicated development and utilization ports, improve the level of public data development, and release data dividends.
2022年年初，国务院印发” ‘十四五’ 数字经济发展规划”。 强调要建立健全国家公共数据资源体系 统筹公共数据资源开发利用，推动基础公共数据安全有序开放，构建统一的国家公共数据开放平台和开发利用端口 ，提升公共数据开放水平，释放数据红利。
07:26
Third is to release the value of commercial data. We need to release the value potential of commercial data, accelerate the establishment of a data property rights system, conduct research on data element valuation, and establish a distribution mechanism for data elements based on value contribution. For public data, the emphasis is on the aggregation and utilization of resources and the establishment of a data resource repository. For commercial data, the emphasis is on market-based allocation.
三是商业数据价值释放，要释放商业数据价值潜能，加快建立数据产权制度，开展数据资产计价研究。建立数据要素按价值贡献参与分配机制。对于公共数据，强调的是资源的汇聚利用，数据资源库的建立。对于商业数据，强调的则是市场化配置。
07:55
Compared with other factors of production, data has distinctive characteristics in terms of ownership, circulation, transactions, and profit distribution: it’s intangible and invisible. Value is generated through association, mining, analysis, and visualization. Its ownership is often multifaceted and, if not properly protected, may lead to security risks. At present, our country has yet to establish basic systems for the market transfer of data elements. Data circulation and utilization face challenges such as unclear ownership, vague pricing mechanisms, and a lack of trust in transaction mechanisms.
相比其他生产要素，数据在产权归属、流通交易、收益分配等方面具有较强的特殊性，它看不见，摸不着。通过关联、挖掘、分析和可视化而产生价值，其产权归属具有多重性，并可能因为保护不当而导致安全风险。目前我国尚未形成数据要素流转市场的基础制度，数据流通利用面临产权归属不明、定价机制不清、交易信任机制不畅等问题。
08:33
The establishment of a data property rights system is a key prerequisite for the operation of the data element market. To achieve the market-based allocation of data elements, the issue of unclear data property rights must be resolved. The ‘Twenty Data Measures’ clearly propose exploring a structurally separated system of data property rights. It does not avoid the complex property right issues of data elements. At the same time, it places greater emphasis on usage rights, creatively proposing a data property rights system with a tripartite framework, comprising data resource source ownership, data processing and usage rights, and data product operation rights, to build a data property rights system with Chinese characteristics.
数据产权制度建设是数据要素市场运转的关键前提，要实现数据要素市场化配置，必须要解决数据产权不明问题。”数据20条”中明确提出，探索数据产权结构性分置制度。它没有回避数据要素的复杂产权问题。同时更强调使用权，创造性提出建立数据资源持有权、数据加工使用权和数据产品经营权 “三权分置” 的数据产权制度框架，构建中国特色数据产权制度体系。
09:14
Research on data asset valuation needs to address the issue of aligning the theoretical price derived from asset valuation standards with the data prices recognized by the actual market. In addition, it is necessary to cultivate the data element market, establishing a mechanism where the value of data elements is evaluated by the market and compensation is determined based on contribution. After years of practical exploration, the basic form of our data element market has taken shape with data trading organizations as the core, promoting data circulation and trading.
数据资产计价研究需要解决的是由资产准则所得出的理论价格和实际中受市场所认可的数据价格的匹配度问题。此外还要培育数据要素市场，建立数据要素由市场评价贡献，按贡献决定报酬机制。经过多年实践探索，我国数据要素市场的基本形态就是以数据交易机构为核心，促进数据流通交易。
09:46
2015年以来，全国各地已经建立了50余所数据交易机构。数据要素市场交易机构 , 运营体系、保障机制已具雏形。据预测 “十四五” 期间，我国数据要素市场规模复合增速将超过25%，整体进入快速发展阶段。预计到2025年，中国产生的数据总量达48.6ZB泽字节。
Since 2015, more than 50 data trading institutions have been established across the country. The trading organization, operational systems, and safeguard mechanisms of the data element market have already begun to take shape. It is projected that during the 14th Five-Year Plan period, our country’s data element market will experience a compound annual growth rate of over 25%, entering a stage of rapid development. By 2025, the total volume of data generated in China is expected to reach 48.6 zettabytes.
10:14
This will account for 27.8% of the world’s total, and its average annual contribution to GDP growth is expected to reach approximately 1.5% – 1.8%.
占全球的27.8%，对 GDP 增长的贡献率年均约达1.5% – 1.8%。
Footnotes
- factor of production (生产要素). A concrete signal of the Party’s new view on data came in April 2020. At that time, the central government formally revised core elements of Marxist theory, both historical materialism and the labor theory of value, by designating data as a new factor of production, and the key factor in a digital economy, surpassing labor. ↩︎
- grand circulation of data resources (数据资源大循环). The Party seeks the Grand Circulation of Data Resources, a concept embodied in its decision to build the world’s first nationally unified system of rules, institutions, and technologies to comprehensively manage data and its intelligent application. ↩︎
- information “aorta” (信息大动脉). This is Xi Jinping’s personal metaphor, the information or digital “aorta,” used to help non-technical Party cadre and members grasp the urgency of digital infrastructure construction and development. ↩︎
- data element (数据要素). “Data element” is the standard translation of “数据要素” in PRC state-run media, but you will also see it translated occasionally inside and outside China as “data factor” or “data asset.” Data elements are “data resources that exist in electronic form and participate in economic activities through computational means, generating significant value. In the digital economy, the role of data elements is comparable to that of traditional factors of production such as labor, capital, and land. Data elements are the core engine driving the development of the digital economy,” see “Data Element” (数据要素), Hubei Data Administration, January 07, 2024.” ↩︎