TPP对跨境金融数据“另眼相看”？

电子商务章节

对跨境数据流动来说，TPP协议有着突出的意义。至少对美国来说，这是其第一次在贸易协定文本中加入了限制数据本地化的要求。具体条款主要在第14章——“电子商务”。

Article 14.11要求，出于商业所需时，各方应当允许数据（包括个人信息）的跨境流动。但各方为实现正当的公共政策目标，可采取限制措施，只要这样的措施不构成恣意、无正当理由的歧视，以及超过实现政策目标所需。

Article 14.11: Cross-Border Transfer of Information by Electronic Means
    1. The Parties recognise that each Party may have its own regulatory requirements concerning the transfer of information by electronic means.
    2. Each Party shall allow the cross-border transfer of information by electronic means, including personal information, when this activity is for the conduct of the business of a covered person.
    3. Nothing in this Article shall prevent a Party from adopting or maintaining measures inconsistent with paragraph 2 to achieve a legitimate public policy objective, provided that the measure:

        (a) is not applied in a manner which would constitute a means of arbitrary or unjustifiable discrimination or a disguised restriction on trade; and
        (b) does not impose restrictions on transfers of information greater than are required to achieve the objective.

Article 14.13要求，各方不应当将使用境内的计算设施作为在其境内开展商业活动的条件之一。但各方为实现正当的公共政策目标，可采取限制措施，只要这样的措施不构成恣意、无正当理由的歧视，以及超过实现政策目标所需。

Article 14.13: Location of Computing Facilities
    1. The Parties recognise that each Party may have its own regulatory requirements regarding the use of computing facilities, including requirements that seek to ensure the security and confidentiality of communications.
    2. No Party shall require a covered person to use or locate computing facilities in that Party’s territory as a condition for conducting business in that territory.
    3. Nothing in this Article shall prevent a Party from adopting or maintaining measures inconsistent with paragraph 2 to achieve a legitimate public policy objective, provided that the measure:
        (a) is not applied in a manner which would constitute a means of arbitrary or unjustifiable discrimination or a disguised restriction on trade; and
        (b) does not impose restrictions on the use or location of computing facilities greater than are required to achieve the objective. 

Article 14.13中所提到的计算设施，显然包括数据中心。把Article 14.11和Article 14.13合起来解释就是，如果没有正当公共政策目标，不得限制数据跨境流动，而且不得强制在本地存储数据的副本。

金融服务章节

非常值得注意的是，“电子商务”一章在Article 14.1中指出，金融机构不在该章的管辖范围内。而TPP第11章——“金融服务”一章，仅仅包含了类似于Article 14.11的条款：

Section B: Transfer of Information
Each Party shall allow a financial institution of another Party to transfer information in electronic or other form, into and out of its territory, for data processing if such processing is required in the institution’s ordinary course of  business. Nothing in this Section restricts the right of a Party to adopt or maintain measures to:
        (a) protect personal data, personal privacy and the confidentiality of individual records and accounts; or
        (b) require a financial institution to obtain prior authorisation from the relevant regulator to designate a particular enterprise as a recipient of such information, based on prudential considerations, provided that this right is not used as a means of avoiding the Party’s commitments or obligations under this Section.

该章的附录B的Section B要求，一国应当允许金融机构在日常运营中所需开展的跨境数据流动，除非是（a）为了保护个人数据，个人隐私，记录或账户的保密性；（b）出于审慎监管所需，在指定数据接收方前事先征求监管机构的许可。【注：关于此点，后面将会有所论述】例如，智利、墨西哥、秘鲁、新加坡、越南明确提出，将会出于（a）和（b）限制金融数据流动。

纵观“金融服务”一章，却不见类似于Article 14.13的条款。换句话说，对金融机构，TPP是允许强制在本地存储数据副本的。

这也是为什么美国金融行业一直在游说国会，声称与“电子商务”一章相比，TPP文本在“金融服务”中的条款没有给他们的商业利益足够的保护。2016年5月，美国的六大商业组织（American Farm Bureau Federation, the Emergency Committee for American Trade, the National Association of Manufacturers, the National Foreign Trade Council, the U.S. Council for Business and the U.S. Chamber of Commerce）甚至绕过美国政府，直接写信给TPP国家的贸易谈判大使，希望这些国家能同意在三大问题上修改TPP条款。三大问题之一即包括TPP允许一国政府强制金融机构在本地存储数据（哪怕只是副本）。【注：其他两个问题关于烟草和生物类】。

"另眼相看"的原因

只要稍微熟悉美国政府运作和金融行业强大游说能力，肯定会感到意外：为什么美国政府在TPP谈判过程中没能充分保护美国金融行业的利益？

原因出在美国政府的内部。2016年2月，美国前财政部部长Jack Lew透露，之所为TPP用了这样的语言，主要是美联储和美国联邦证券交易委员会 （Federal Securities and Exchange Commission）的意见。这两个机构出于监管需要，特别是在2008年金融危机期间，需要实时地获取金融机构的数据；但由于这些数据遍布全球，调取十分困难和繁琐，严重耽误了监管工作的开展。

何去何从？

当然，美国金融行业也不是吃素的。2016年5月，他们和Jack Lew达成了以下共识：

1. TPP文本不改了，但是美国以后的贸易谈判中将给予金融机构利益更好的保护，例如the Trade in Services Agreement (TiSA), the Transatlantic Trade and Investment Partnership with the EU (T-TIP), and the U.S.-China Bilateral Investment Treaty (BIT) 。

2. 对于金融数据和本地化存储，主要将使用四句话：

        a. prohibits data localization requirements when financial regulators are able to access information stored abroad;

        b. prohibits restrictions on cross-border data transfer for business that is within the scope of a company's financial services license;

        c. requires regulators to engage with companies before imposing data localization requirements to provide companies an opportunity to comment and/or address regulatory concerns; and

        d. enforces these obligations through state-to-state dispute settlement.