奥巴马法令被废 一场争夺互联网未来的较量在美发生

（原标题：一场争夺互联网未来的较量正在美国发生）

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如此全面快速的朝令夕改，在美国历史上实不多见，背后是电信和互联网两个行业的强力博弈

李军 |文

2017年4月27日，美国内华达州里诺市(Reno)中心，一个面向80号高速公路的巨大广告牌刚刚刷新出新内容。和往常的商业广告不同，这次显示出内华达州参议员Dean Heller的头像和几行硕大的文字：“Heller出卖了你。他收了电信公司34.5万美元，然后就投票允许电信公司未经你的许可贩卖你的上网记录。请去打电话问问他为什么：775-738-2201。”（见题图）

奥巴马法令接连被废

与此同时，类似内容也出现在美国田纳西、佛罗里达和亚利桑那州的高速公路广告牌上，只是主角被换成了本州参议员。

为什么参议员会被选民摆上巨幅广告牌抨击？电信公司贩卖用户上网记录又是怎么回事？这一切，都因美国政府在2016年10月正式生效的《宽带客户隐私保护规则》》（Rules to Protect Broadband Consumer Privacy）而起。而这份互联网时代重要的客户隐私保护法规，在正式生效满打满算六个月后，于2017年4月份被废止了。

这不是一个孤立的事件。另一份2015年6月正式生效的《开放互联网法令》（Open Internet Order），也被美国联邦电信委员会主席Ajit Pai提上了废止日程，计划在几个月内废止。

奥巴马总统在电信监管领域最重要的两份政治遗产——《开放互联网法令》和《宽带客户隐私保护规则》，在特朗普总统上任百日，就面临全面废止。如此全面且快速的朝令夕改，在美国历史上实不多见，这背后是美国电信行业和互联网行业为赢得数据经济时代的激烈博弈。

只给电信运营商戴镣铐

未来的世界，将是全面的数字化世界。从传统的第一产业、第二产业，到线下的第三产业，都会基于数字化技术重构。至于依托IT技术和互联网平台的线上第三产业，从诞生伊始就是以数字化的形式创造和运营的，是信息世界的原住民。未来所有行业的产业资源、生产/服务过程、产业链与协作乃至生产/服务的对象，都将形成数字化镜像存在于数字经济中。

《经济学人》杂志5月份的封面文章《世界上最宝贵的资源》(world’s most valuable)提出一个观察未来数字经济的观点：如果说石油是工业时代最重要的大宗商品，那么数据将是后工业时代，也就是数字经济时代，数一数二的大宗商品。

数据作为数字经济的核心资源，搜集、提炼、流转、分析乃至消费数据，将贯穿整个数字经济产业链。可以说，谁掌握了数据产业链的关键环节，就将成为数字经济的核心参与者。

对于大多数人来说，数字经济时代的掌控者应该是以Google、Amazon、Facebook、Netflix为代表的互联网企业。但是对于这些互联网巨头来说，电信运营商是它们最大的威胁。

每个人在数字经济世界中都会有自己的数字化镜像，镜像数据来自每个人随身的电子设备以及物联网世界各种传感器采集到的个人信息。

我们身边的电子设备越来越多，手机、手环、眼镜，每个电子设备都在采集不同种类的个人信息——从通话、短信、社交、娱乐，到位置、运动、生活轨迹，甚至到心跳、血压、热量摄入、睡眠状况、血氧含量。

未来，每个人都如一口微型的数据油井，24小时不断生产出个人数据，然后依靠电信运营商的网络源源不断上传到互联网服务提供商的数字世界中。

这些不断积累的个性化数据就成为了互联网服务提供商挖掘个人商业价值的金矿。

作为信息采集设备的互联网接入和数据传输管道提供者，电信运营商是互联网服务提供商和最终用户之间的桥梁和纽带，天然具有数据采集能力。

在某些方面，电信运营商具有更强的跨领域数据收集与整合能力，比如数据与真实世界个体的匹配、多领域跨平台数据整合。

因此，互联网公司通过对政府施压以及借助各种舆论压力，谋求以行业监管规则约束电信运营商在数据收集和使用领域带来的威胁。

在政府组织的听证会上，民主党议员在抨击电信运营商对客户数据的采集使用时说，“就在上周，我在网上买了内衣。你(电信运营商)为什么要知道我拿的内衣是什么尺寸？”“给我一个好的理由，Comcast(美国最大的Cable服务提供商)为什么应该知道我母亲的医疗问题。”

显然，几乎所有的消费者都不会同意让电信运营商在自己的互联网隐私数据里翻翻找找，以此探寻商业机会并赚钱的。更何况，互联网隐私数据还有可能被电信运营商共享给第三方创造商业机会。

在民主党政府鼓吹下，电信运营商成为了新时代的数据妖魔，时刻觊觎着客户的互联网隐私数据并希望以此盈利。于是，在群情激愤下，美国联邦通信委员会通过了《宽带客户隐私规则》。

该规则是对电信运营商采集和使用客户互联网数据的一道紧箍咒，核心内容是客户有权决定自己的互联网使用数据是否允许电信运营商使用以及如何使用。

不过，《宽带客户隐私保护规则》正如其名，只适用于宽带接入服务提供商(Broadband Service Provider)，也就是电信运营商，并不约束Google、Facebook等互联网企业。

和互联网企业相比，电信运营商更加道德败坏，更加会滥用自己掌握的客户互联网数据吗？答案显然是否定的。但政府还是通过监管规则给电信运营商单独戴上了镣铐。

《宽带客户隐私规则》让坐拥互联网接入与访问这座大数据宝库的电信运营商基本失去了参与数据经济时代收集客户数据并进行商业化盈利的资格，也杜绝了电信运营商在数字化生产环节对互联网公司产生威胁的可能。

其实，互联网企业具有同样的数据收集与商业化的能力。在数据商业化领域，互联网企业与电信运营商相比经验更加丰富，商业化的形式更加多种多样，企业间协作与信息共享更深入。因此电信运营商对奥巴马政府的不对称管制异常愤怒。

实际上，在数据消费环节，电信运营商对互联网企业的影响力巨大。相信每个读者在浏览网站、观看视频时，最怕遇见的就是“加载中……”、“缓存中……”这样的提示。而决定使用过程中是否会遇上这样需要等待的，往往不是互联网企业，而是电信运营商。

在一长串网络数据传递过程中，电信运营商的各级网络管理策略会对数据传递产生各种影响，或者加快，或者减慢。

一些重流量消耗的互联网服务，如音频、视频以及未来的在线虚拟现实(Virtual Reality)等，其服务质量与客户体验，更是对电信运营商的网络管道有着严重的依赖。电信运营商的网络管理与优化策略对互联网企业数据消费环节的客户体验有着举足轻重的影响。

市场调研机构Sandvine 2015年的报告显示，Netflix和Youtube已经成为2015年互联网在美国最大的带宽资源消耗者，分别消耗了37.1%和17.9%的互联网流量。

如此巨大的流量消耗，对于网络的连接稳定性和响应速度就会有非常高的要求。Netflix和Youtube的客户体验，是完全掌握在互联网通道的所有者电信运营商手中的。

其实，电信运营商已经开始在数据消费环节向互联网企业展示自身的影响力了。

2014年，美国Cable运营商Comcast和互联网视频服务供应商Netflix达成协议，Netflix向Comcast支付一定费用，以获取直接使用Comcast提供的宽带网络的权利，而无需通过中间环节接入Comcast的网络，最终为Netflix的用户提供更加流畅的在线视频观看体验。

2013年，法国电信公司同Google公司达成了收费协议，Google公司将向法国电信支付上亿美元的互联网流量费。根据法国电信的数据显示，来自谷歌业务的数据流量已经占法国电信网络总流量的50%以上。法国电信认为，作为网络带宽资源的消耗大户，谷歌公司需要为其巨额流量付费。

可见，现有规则下，在数据消费环节，电信运营商对互联网企业具有天然的博弈优势。到了全面的数字经济时代，电信运营商的博弈优势将更加明显。

那么，互联网企业会任由电信运营商扼住自己的咽喉吗？当然不会。

于是，就有了《开放互联网法令》。该法令的核心原则是：

* 不能屏蔽(No Blocking)：宽带服务提供商不可以屏蔽任何合法的内容、应用、服务和设备。

* 不能限制（No Throttling） ：宽带服务提供商不可以降低或者减慢合法的互联网数据传输以及相关的应用、服务和设备访问。

* 不允许付费优先（No Paid Prioritization）：宽带服务提供商不可以主动划分数据传输的优先等级并以此获益，换句话说——没有数据传输的“付费快车道”。

简单总结，就是“不得屏蔽，不得限制，不得提供有偿的差异化接入服务”。

所有数据传输一视同仁，电信运营商不得在自己建设并管理的的网络传输管道上区别性管理数据流。这个法令彻底剥夺了电信运营商数字化消费环节对于互联网企业和客户感知的掌控权，也让电信运营商在数字化消费环节获取增长服务收益的可能成为泡影。

同样，《开放互联网法令》也只适用于电信运营商，对互联网企业没有任何约束。在《开放互联网法令》第二章第4节“规则适用范围”（Scope of the Rules）中明确指出，“此开放互联网规则适用于有关固网和移动宽带访问服务……此法令适用于面向公众客户宽带网络服务，即宽带互联网访问服务……”

通过《宽带客户隐私保护规则》和《开放互联网法令》，政府对电信行业和互联网行业进行不对称监管，电信运营商只有在同质化的互联网接入服务领域自相残杀，并终将蜕变为水电煤气这样的基础设施服务行业。这也是符合奥巴马为首的民主党政府对电信行业定位的原则——公众服务产业(Utility Service)。

反击战开打

2017年1月，特朗普就任美国总统。1月23日，上任才四天的特朗普总统任命Ajit Pai为新一届美国联邦通信委员会主席，替代奥巴马总统时的主席Tom Wheeler。由此，电信运营商的反击战拉开序幕。

Ajit Pai上任伊始，就决定废止《宽带客户隐私保护规则》。2月份众议院投票，3月份参议员投票，4月3日总统签字。只用了三个月，AjitPai就一路绿灯地走完所有程序，把刚生效六个月的《宽带客户隐私保护规则》彻底废除，效率让人瞠目。

4月23日，在《宽带客户隐私保护规则》被废止后的20天，Ajit Pai在华盛顿发表公开讲话，阐述了自己对于未来互联网监管的看法。

在这份题为“自由互联网的未来”（THE FUTURE OF INTERNET FREEDOM）的讲话中，他旗帜鲜明地提出，2015年通过的《开放互联网法令》已经严重阻碍了电信与互联网行业的健康发展，现在是时候考虑要尽快废止这个法令了。

生成海报

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