从“主权赤字”到“数字再平衡”：中国专家在巴西众议院发声

Club提要：巴西众议院科技与创新委员会（CCTI）日前举行公开听证会，北京对话特约专家、中国科学院教授肖尤丹受邀做主题发言。

肖尤丹指出，数字时代的“不对称相互依存”正加剧全球“主权赤字”——数据过度集中、供应链高度脆弱、规则单边外溢，均削弱了国家的自主能力。他提出，应以BRICS+机制为合作平台，推动数字主权的再平衡。肖尤丹还介绍了中国在法律框架下确保数据安全与主权的制度经验，并就中巴合作提出三项可行建议：联合研发关键技术、推进开放互操作标准、强化多边数字治理。他呼吁通过南南协作，共建公平、韧性、包容的数字未来。

Club Briefing: The Committee on Science and Technology and Innovation (CCTI) of the Brazilian Chamber of Deputies recently held a public hearing, where Xiao Youdan, Professor at the Chinese Academy of Sciences and a Senior Fellow with Beijing Club for International Dialogue, was invited to deliver a keynote speech.

Xiao pointed out that the digital era’s “asymmetric interdependence”is deepening the global “sovereignty deficit”— with excessive data concentration, fragile supply chains, and the extraterritorial spillover of rules all undermining national autonomy. He proposed leveraging the BRICS+ mechanismas a cooperative platform to rebalance digital sovereignty.

Xiao also shared China’s institutional experience in ensuring data security and sovereignty within a legal framework, and offered three practical recommendations for China–Brazil cooperation: joint R&D on key technologies, advancing open and interoperable standards, and strengthening multilateral digital governance. He called for enhanced South–South cooperationto build a fair, resilient, and inclusive digital future.

肖尤丹发言全文如下（中文版）：

主席先生、法乌斯托·皮纳托议员、尊敬的各位委员、各位同仁：

感谢邀请。我来自中国科学院科技战略咨询研究院，并担任北京对话科技政策领域的特约专家。作为国家智库，我们为中国的科学、技术和创新政策提供战略研究和咨询支持。今天，我很荣幸能在此与各位分享关于技术融合与数字主权的见解，并特别聚焦于全球南方与中国在扩大的BRICS+框架内的协同关系。

共同的挑战：不对称的相互依存

我们生活在一个深度数字融合的时代。然而，这种融合本质上是不对称的，为我们许多国家造成了所谓的"主权赤字"。

问题的核心在于技术权力的极度集中。请考虑以下维度：

第一，数据主导权维度。全球大部分数据由少数非国家行为体掌控和货币化，导致了一种新形式的数字依赖；第二，供应链脆弱性维度。从先进半导体到人工智能基础模型，关键技术集中在地理和政治上集中的供应链中。这使得我们的经济，乃至国家安全，易受外部干扰的影响；第三，规则强加维度。治理我们数字空间的规则和标准，常常在没有全球南方有意义参与的情况下制定，无意中采纳了可能与我们本地国情和发展需求不符的外部规则。

俄罗斯联邦安全局 （FSB）近期表示，俄罗斯新的即时通讯应用程序 MAX 已成为外国平台的安全替代品，加强了该国的数字主权并有助于遏制在线欺诈。（图源：MAX官网）

因此，对于巴西和中国这样的国家而言，数字主权并非抽象概念。它是数字时代自决权的核心能力——即控制我们的数据、保障我们关键基础设施安全以及塑造我们社会技术未来的能力。

集体的机遇：BRICS+框架下的再平衡

面对这一挑战，BRICS+联盟已成为培育一个更加平衡、多极化数字世界的最重要平台。我们的集体力量是不可否认的。

BRICS+现在约占全球GDP的30%，并覆盖近世界一半人口。这种规模提供了市场力量、人才库和政治影响力来促成改变。更重要的是，我们正见证从对话转向具体行动的转变：

2017年9月，金砖国家领导人第九次会晤在中国厦门举行，中方创新性地提出“金砖+”合作模式，为广大发展中国家团结合作、共同发展搭建了新型合作平台。（图源：央视新闻）

新开发银行（NDB）已批准超过120个基础设施和可持续发展项目，展示了经过验证的合作融资记录。诸如计划中的BRICS+人工智能协作平台等倡议，旨在汇集资源进行联合研发，减少我们对内部人工智能技术的集体依赖。

协调数字支付系统和促进本币贸易的努力，正在为我们的集团创建更具韧性的金融基础设施。这并非要建立一个封闭的集团，而是要构建一个平衡力量，以确保我们的选择是自由的，我们的发展道路是自主决定的。

中国的经验：立法框架下的"主权设计"

中国确保数据主权的方法是系统性的，并以法律为基础。它建立在三个相互依存的支柱之上，这可能为其他正在构建自身数字治理体系的国家提供有价值的参考。

第一支柱确保创新能力保持自主。这主要由《科学技术进步法》和《促进科技成果转化法》驱动。

这些法律为本土创新创建了一个自我强化的生态系统。它们动员国家资源用于战略性研发，保护关键科技成果，并通过明确研究人员的发明所有权和利益分享机制来激励他们。目标是构建一个从基础研究到市场应用的自主可控的创新链，减少关键依赖。

第二支柱侧重于数据的人文和经济维度。包括《民法典》《个人信息保护法》、知识产权相关法律和《刑法》在内的一系列法律协同工作，构成了一张全面的保护网。

肖尤丹在“2025金砖峰会展望：里约-北京对话会”上发言（图源：北京对话）

《民法典》从法律上界定并保护隐私权和个人信息。《个人信息保护法》将这些原则操作化，为数据收集和处理制定了严格规则。知识产权法律保护数字创新成果，而《刑法》则惩处数据盗窃和侵犯公民个人信息等严重违法行为。

第三支柱为数据治理设定了硬性边界。这是通过《网络安全法》《数据安全法》和《出口管制法》等法律实现的。《网络安全法》侧重于保护关键信息基础设施。《数据安全法》引入了全面的 "数据分类分级" 制度，对不同级别的数据，特别是涉及国家安全和公共利益的数据，提出了安全管理要求。《出口管制法》为管理与国家安全相关的敏感物项和数据的跨境流动提供了法律工具。

《中华人民共和国数据安全法》是为规范数据处理活动、保障数据安全、促进数据开发利用而制定的法律文本，于2021年6月10日经第十三届全国人民代表大会常务委员会第二十九次会议通过，自2021年9月1日起施行。（图源：新浪新闻）

超越法律，中国的"人工智能+"行动计划将这些规则付诸实践。它帮助行业使用人工智能，目标是到2027年在关键领域实现70%的人工智能应用，与全球南方国家合作开展人工智能项目，并确保人工智能的伦理使用。这表明了良好的法律如何能让一个国家安全地利用变革性技术。

BRICS+框架下的中巴合作路径

基于共同挑战和集体潜力的基础，我认为深化巴西与中国合作存在几条富有成果的路径。

第一，从交易到共创。我们必须超越买方-卖方的关系。我们可以建立联合研发联盟，专注于双方共同利益的战略领域，例如：开发用于热带农业和公共卫生的人工智能模型。在下一代绿色能源技术和可持续采矿研究方面进行合作。

第二，从孤岛到互操作性。主权通过智能互联得到加强而非削弱。巴西和中国可以倡导在BRICS+内部采用开放标准和可互操作的系统。通过确保我们的数字公共基础设施——从电子政务平台到数字支付系统——能够无缝通信，我们创建一个更大、更一体化的市场，减少对任何单一生态系统的依赖。

据报道，马来西亚政府将建立一个“主权AI云”（sovereign AI cloud），以确保国家人工智能能力的安全与自主，同时支撑政府服务及国家数字化发展。（图源：马新社）

第三，从双边主义到多边治理。当我们协调一致时，我们各自的声音会被放大。巴西和中国作为全球南方的主要锚点，拥有历史性机遇，在国际论坛上领导协调一致的努力。通过在从数据流到人工智能伦理等全球数字治理问题上协调立场，我们可以确保未来数字经济的规则反映我们共同的发展需求，并抵抗一切形式的数字霸权。

结论

总之，在互联世界中，实现数字主权的路径不在于孤立，而在于我们伙伴关系的战略多元化。正是通过可信赖的南南合作，我们才能重新平衡技术权力的天平。

巴西与中国之间的伙伴关系，在充满活力的BRICS+框架内焕发活力，代表着构建一个更加公平、有韧性和包容的数字未来的强大力量。通过专注于共同创造、互操作性和团结一致的外交，我们可以确保技术融合的益处惠及我们所有的公民。

谢谢各位。

Honorable Chairman, Congressman Fausto Pinato, distinguished members of the Committee, colleagues.

Thank you for this esteemed invitation. I am Youdan Xiao, a Professor from the Institutes of Science and Development of the Chinese Academy of Sciences, and a strategic advisor on science and technology policy at the Beijing Dialogue. Our institute serves as a national think tank, providing strategic research and advisory support for China's policies in science, technology, and innovation. It is a privilege to share with you today a perspective on technological integration and digital sovereignty, with a special focus on the synergistic relationship between the Global South and China within the expanding BRICS+ framework.

The Shared Challenge: Asymmetric Interdependence

We live in an era of profound digital integration. Yet, this integration is fundamentally asymmetric, creating what we term a "sovereignty deficit" for many nations.

The core of the issue lies in the extreme concentration of technological power. Consider these dimensions:

Data Dominance: A vast portion of the world's data is governed and monetized by a handful of non-state actors, leading to a new form of digital dependency.

Supply Chain Vulnerabilities: Critical technologies, from advanced semiconductors to the foundational models of artificial intelligence, are concentrated in geographically and politically centralized supply chains. This makes our economies, and indeed our national security, susceptible to external disruptions.

Normative Imposition: The rules and standards governing our digital spaces are often set without the meaningful participation of the Global South, unintentionally adopting foreign rules that may not align with our local contexts and developmental needs.

For nations like Brazil and China, therefore, digital sovereignty is not an abstract concept. It is the essential capacity for self-determination in the digital age—the ability to control our data, secure our critical infrastructure, and shape the technological future of our societies.

The Collective Opportunity: The BRICS+ Framework for Rebalancing

In the face of this challenge, the BRICS+ coalition has emerged as the most significant platform for fostering a more balanced and multipolar digital world. Our collective strength is undeniable.

BRICS+ now accounts for about 30% of global GDP and encompasses nearly half of the world's population. This scale provides the market power, the talent pool, and the political leverage to effect change. More importantly, we are witnessing a shift from dialogue to concrete action:

The New Development Bank has already approved over 120 infrastructure and sustainable development projects, demonstrating a proven track record of collaborative financing.

Initiatives like the planned BRICS+ AI Collaboration Platform aim to pool resources for joint research and development, reducing our collective dependency on external AI technologies.

Efforts to harmonize digital payment systems and promote trade in local currencies are creating a more resilient financial infrastructure for our bloc.

This is not about creating a closed bloc, but about building a counterweight to ensure our choices are free and our development paths are self-determined.

The Chinese Experience: Legislative Frameworks for "Sovereignty by Design"

China's approach to securing data sovereignty is systematic and legally grounded. It is constructed upon three interdependent pillars, which may offer a valuable reference for other nations.

The first pillar ensures that the capacity for innovation remains sovereign. This is primarily driven by the Science and Technology Progress Law and the Promotion of the Transformation of Scientific and Technological Achievements Law.

These laws create a self-reinforcing ecosystem for indigenous innovation. They mobilize state resources for strategic R&D, protect key scientific and technological achievements, and incentivize researchers by clarifying ownership and benefit-sharing mechanisms for their inventions.

The goal is to build an autonomous and controllable innovation chain, from basic research to market application, reducing critical dependencies.

The second pillar focuses on the human and economic dimension of data. A suite of laws, including the Civil Code, the Personal Information Protection Law, Intellectual Property-related laws, and the Criminal Law, work in concert to create a comprehensive protective net.

The Civil Code legally defines and protects privacy rights and personal information. The Personal Information Protection Law operationalizes these principles, setting strict rules for data collection and processing. IP Laws protect the fruits of digital innovation, while the Criminal Law punishes severe violations such as data theft and infringement of citizens' personal information.

The third pillar establishes the hard boundaries for data governance. This is achieved through laws like the Cyber Security Law, the Data Security Law, and the Export Control Law. The Cyber Security Law focuses on protecting critical information infrastructure. The Data Security Law introduces a comprehensive "data classification and grading" system, imposing security management requirements for different levels of data, especially those pertaining to national security and the public interest. The Export Control Law provides a legal tool to manage the cross-border flow of sensitive items and data relating to national security.

Beyond laws, China's "AI Plus" Action Plan puts these rules into practice. It helps industries use AI, aims for 70% AI use in key areas by 2027, works with Global South nations on AI projects, and ensures AI is used ethically. This shows how good laws allow a country to safely use new technologies.

Pathways for China-Brazil Cooperation within BRICS+

Building on this foundation of shared challenges and collective potential, I see several fruitful pathways for deepening the cooperation between Brazil and China.

First, from Transaction to Co-creation. We must move beyond a buyer-seller relationship. We can establish joint R&D consortia focused on strategic areas of mutual interest, such as: Developing AI models for tropical agriculture and public health. Collaborating on research into next-generation green energy technologies and sustainable mining.

Second, from Silos to Interoperability. Sovereignty is strengthened, not weakened, by smart interconnection. Brazil and China can champion the adoption of open standards and interoperable systems within BRICS+. By ensuring our digital public infrastructures—from e-government platforms to digital payment systems—can communicate seamlessly, we create a larger, more integrated market that is less dependent on any single ecosystem.

Third, from Bilateralism to Multilateral Governance. Our individual voices are amplified when we speak in concert. Brazil and China, as major anchors of the Global South, have a historic opportunity to lead a coordinated effort in international fora. By aligning our positions on global digital governance—from data flows to AI ethics—we can ensure that the rules of the future digital economy reflect our shared developmental needs and resist all forms of digital hegemony.

Conclusion

In conclusion, the path to digital sovereignty in an interconnected world lies not in isolation, but in the strategic diversification of our partnerships. It is through trusted, South-South cooperation that we can rebalance the scales of technological power.

The partnership between Brazil and China, energized within the dynamic BRICS+ framework, represents a formidable force for building a more equitable, resilient, and inclusive digital future. By focusing on co-creation, interoperability, and united diplomacy, we can ensure that the benefits of technological integration are shared by all our citizens.

Thank you for your attention.