奧巴馬法令被廢 一場爭奪互聯(lián)網(wǎng)未來的較量在美發(fā)生

（原標題：一場爭奪互聯(lián)網(wǎng)未來的較量正在美國發(fā)生）

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如此全面快速的朝令夕改，在美國歷史上實不多見，背后是電信和互聯(lián)網(wǎng)兩個行業(yè)的強力博弈

李軍 |文

2017年4月27日，美國內(nèi)華達州里諾市(Reno)中心，一個面向80號高速公路的巨大廣告牌剛剛刷新出新內(nèi)容。和往常的商業(yè)廣告不同，這次顯示出內(nèi)華達州參議員Dean Heller的頭像和幾行碩大的文字：“Heller出賣了你。他收了電信公司34.5萬美元，然后就投票允許電信公司未經(jīng)你的許可販賣你的上網(wǎng)記錄。請去打電話問問他為什么：775-738-2201?！保ㄒ婎}圖）

奧巴馬法令接連被廢

與此同時，類似內(nèi)容也出現(xiàn)在美國田納西、佛羅里達和亞利桑那州的高速公路廣告牌上，只是主角被換成了本州參議員。

為什么參議員會被選民擺上巨幅廣告牌抨擊？電信公司販賣用戶上網(wǎng)記錄又是怎么回事？這一切，都因美國政府在2016年10月正式生效的《寬帶客戶隱私保護規(guī)則》》（Rules to Protect Broadband Consumer Privacy）而起。而這份互聯(lián)網(wǎng)時代重要的客戶隱私保護法規(guī)，在正式生效滿打滿算六個月后，于2017年4月份被廢止了。

這不是一個孤立的事件。另一份2015年6月正式生效的《開放互聯(lián)網(wǎng)法令》（Open Internet Order），也被美國聯(lián)邦電信委員會主席Ajit Pai提上了廢止日程，計劃在幾個月內(nèi)廢止。

奧巴馬總統(tǒng)在電信監(jiān)管領域最重要的兩份政治遺產(chǎn)——《開放互聯(lián)網(wǎng)法令》和《寬帶客戶隱私保護規(guī)則》，在特朗普總統(tǒng)上任百日，就面臨全面廢止。如此全面且快速的朝令夕改，在美國歷史上實不多見，這背后是美國電信行業(yè)和互聯(lián)網(wǎng)行業(yè)為贏得數(shù)據(jù)經(jīng)濟時代的激烈博弈。

只給電信運營商戴鐐銬

未來的世界，將是全面的數(shù)字化世界。從傳統(tǒng)的第一產(chǎn)業(yè)、第二產(chǎn)業(yè)，到線下的第三產(chǎn)業(yè)，都會基于數(shù)字化技術(shù)重構(gòu)。至于依托IT技術(shù)和互聯(lián)網(wǎng)平臺的線上第三產(chǎn)業(yè)，從誕生伊始就是以數(shù)字化的形式創(chuàng)造和運營的，是信息世界的原住民。未來所有行業(yè)的產(chǎn)業(yè)資源、生產(chǎn)/服務過程、產(chǎn)業(yè)鏈與協(xié)作乃至生產(chǎn)/服務的對象，都將形成數(shù)字化鏡像存在于數(shù)字經(jīng)濟中。

《經(jīng)濟學人》雜志5月份的封面文章《世界上最寶貴的資源》(world’s most valuable)提出一個觀察未來數(shù)字經(jīng)濟的觀點：如果說石油是工業(yè)時代最重要的大宗商品，那么數(shù)據(jù)將是后工業(yè)時代，也就是數(shù)字經(jīng)濟時代，數(shù)一數(shù)二的大宗商品。

數(shù)據(jù)作為數(shù)字經(jīng)濟的核心資源，搜集、提煉、流轉(zhuǎn)、分析乃至消費數(shù)據(jù)，將貫穿整個數(shù)字經(jīng)濟產(chǎn)業(yè)鏈?？梢哉f，誰掌握了數(shù)據(jù)產(chǎn)業(yè)鏈的關(guān)鍵環(huán)節(jié)，就將成為數(shù)字經(jīng)濟的核心參與者。

對于大多數(shù)人來說，數(shù)字經(jīng)濟時代的掌控者應該是以Google、Amazon、Facebook、Netflix為代表的互聯(lián)網(wǎng)企業(yè)。但是對于這些互聯(lián)網(wǎng)巨頭來說，電信運營商是它們最大的威脅。

每個人在數(shù)字經(jīng)濟世界中都會有自己的數(shù)字化鏡像，鏡像數(shù)據(jù)來自每個人隨身的電子設備以及物聯(lián)網(wǎng)世界各種傳感器采集到的個人信息。

我們身邊的電子設備越來越多，手機、手環(huán)、眼鏡，每個電子設備都在采集不同種類的個人信息——從通話、短信、社交、娛樂，到位置、運動、生活軌跡，甚至到心跳、血壓、熱量攝入、睡眠狀況、血氧含量。

未來，每個人都如一口微型的數(shù)據(jù)油井，24小時不斷生產(chǎn)出個人數(shù)據(jù)，然后依靠電信運營商的網(wǎng)絡源源不斷上傳到互聯(lián)網(wǎng)服務提供商的數(shù)字世界中。

這些不斷積累的個性化數(shù)據(jù)就成為了互聯(lián)網(wǎng)服務提供商挖掘個人商業(yè)價值的金礦。

作為信息采集設備的互聯(lián)網(wǎng)接入和數(shù)據(jù)傳輸管道提供者，電信運營商是互聯(lián)網(wǎng)服務提供商和最終用戶之間的橋梁和紐帶，天然具有數(shù)據(jù)采集能力。

在某些方面，電信運營商具有更強的跨領域數(shù)據(jù)收集與整合能力，比如數(shù)據(jù)與真實世界個體的匹配、多領域跨平臺數(shù)據(jù)整合。

因此，互聯(lián)網(wǎng)公司通過對政府施壓以及借助各種輿論壓力，謀求以行業(yè)監(jiān)管規(guī)則約束電信運營商在數(shù)據(jù)收集和使用領域帶來的威脅。

在政府組織的聽證會上，民主黨議員在抨擊電信運營商對客戶數(shù)據(jù)的采集使用時說，“就在上周，我在網(wǎng)上買了內(nèi)衣。你(電信運營商)為什么要知道我拿的內(nèi)衣是什么尺寸？”“給我一個好的理由，Comcast(美國最大的Cable服務提供商)為什么應該知道我母親的醫(yī)療問題?！?/p>

顯然，幾乎所有的消費者都不會同意讓電信運營商在自己的互聯(lián)網(wǎng)隱私數(shù)據(jù)里翻翻找找，以此探尋商業(yè)機會并賺錢的。更何況，互聯(lián)網(wǎng)隱私數(shù)據(jù)還有可能被電信運營商共享給第三方創(chuàng)造商業(yè)機會。

在民主黨政府鼓吹下，電信運營商成為了新時代的數(shù)據(jù)妖魔，時刻覬覦著客戶的互聯(lián)網(wǎng)隱私數(shù)據(jù)并希望以此盈利。于是，在群情激憤下，美國聯(lián)邦通信委員會通過了《寬帶客戶隱私規(guī)則》。

該規(guī)則是對電信運營商采集和使用客戶互聯(lián)網(wǎng)數(shù)據(jù)的一道緊箍咒，核心內(nèi)容是客戶有權(quán)決定自己的互聯(lián)網(wǎng)使用數(shù)據(jù)是否允許電信運營商使用以及如何使用。

不過，《寬帶客戶隱私保護規(guī)則》正如其名，只適用于寬帶接入服務提供商(Broadband Service Provider)，也就是電信運營商，并不約束Google、Facebook等互聯(lián)網(wǎng)企業(yè)。

和互聯(lián)網(wǎng)企業(yè)相比，電信運營商更加道德敗壞，更加會濫用自己掌握的客戶互聯(lián)網(wǎng)數(shù)據(jù)嗎？答案顯然是否定的。但政府還是通過監(jiān)管規(guī)則給電信運營商單獨戴上了鐐銬。

《寬帶客戶隱私規(guī)則》讓坐擁互聯(lián)網(wǎng)接入與訪問這座大數(shù)據(jù)寶庫的電信運營商基本失去了參與數(shù)據(jù)經(jīng)濟時代收集客戶數(shù)據(jù)并進行商業(yè)化盈利的資格，也杜絕了電信運營商在數(shù)字化生產(chǎn)環(huán)節(jié)對互聯(lián)網(wǎng)公司產(chǎn)生威脅的可能。

其實，互聯(lián)網(wǎng)企業(yè)具有同樣的數(shù)據(jù)收集與商業(yè)化的能力。在數(shù)據(jù)商業(yè)化領域，互聯(lián)網(wǎng)企業(yè)與電信運營商相比經(jīng)驗更加豐富，商業(yè)化的形式更加多種多樣，企業(yè)間協(xié)作與信息共享更深入。因此電信運營商對奧巴馬政府的不對稱管制異常憤怒。

實際上，在數(shù)據(jù)消費環(huán)節(jié)，電信運營商對互聯(lián)網(wǎng)企業(yè)的影響力巨大。相信每個讀者在瀏覽網(wǎng)站、觀看視頻時，最怕遇見的就是“加載中……”、“緩存中……”這樣的提示。而決定使用過程中是否會遇上這樣需要等待的，往往不是互聯(lián)網(wǎng)企業(yè)，而是電信運營商。

在一長串網(wǎng)絡數(shù)據(jù)傳遞過程中，電信運營商的各級網(wǎng)絡管理策略會對數(shù)據(jù)傳遞產(chǎn)生各種影響，或者加快，或者減慢。

一些重流量消耗的互聯(lián)網(wǎng)服務，如音頻、視頻以及未來的在線虛擬現(xiàn)實(Virtual Reality)等，其服務質(zhì)量與客戶體驗，更是對電信運營商的網(wǎng)絡管道有著嚴重的依賴。電信運營商的網(wǎng)絡管理與優(yōu)化策略對互聯(lián)網(wǎng)企業(yè)數(shù)據(jù)消費環(huán)節(jié)的客戶體驗有著舉足輕重的影響。

市場調(diào)研機構(gòu)Sandvine 2015年的報告顯示，Netflix和Youtube已經(jīng)成為2015年互聯(lián)網(wǎng)在美國最大的帶寬資源消耗者，分別消耗了37.1%和17.9%的互聯(lián)網(wǎng)流量。

如此巨大的流量消耗，對于網(wǎng)絡的連接穩(wěn)定性和響應速度就會有非常高的要求。Netflix和Youtube的客戶體驗，是完全掌握在互聯(lián)網(wǎng)通道的所有者電信運營商手中的。

其實，電信運營商已經(jīng)開始在數(shù)據(jù)消費環(huán)節(jié)向互聯(lián)網(wǎng)企業(yè)展示自身的影響力了。

2014年，美國Cable運營商Comcast和互聯(lián)網(wǎng)視頻服務供應商Netflix達成協(xié)議，Netflix向Comcast支付一定費用，以獲取直接使用Comcast提供的寬帶網(wǎng)絡的權(quán)利，而無需通過中間環(huán)節(jié)接入Comcast的網(wǎng)絡，最終為Netflix的用戶提供更加流暢的在線視頻觀看體驗。

2013年，法國電信公司同Google公司達成了收費協(xié)議，Google公司將向法國電信支付上億美元的互聯(lián)網(wǎng)流量費。根據(jù)法國電信的數(shù)據(jù)顯示，來自谷歌業(yè)務的數(shù)據(jù)流量已經(jīng)占法國電信網(wǎng)絡總流量的50%以上。法國電信認為，作為網(wǎng)絡帶寬資源的消耗大戶，谷歌公司需要為其巨額流量付費。

可見，現(xiàn)有規(guī)則下，在數(shù)據(jù)消費環(huán)節(jié)，電信運營商對互聯(lián)網(wǎng)企業(yè)具有天然的博弈優(yōu)勢。到了全面的數(shù)字經(jīng)濟時代，電信運營商的博弈優(yōu)勢將更加明顯。

那么，互聯(lián)網(wǎng)企業(yè)會任由電信運營商扼住自己的咽喉嗎？當然不會。

于是，就有了《開放互聯(lián)網(wǎng)法令》。該法令的核心原則是：

* 不能屏蔽(No Blocking)：寬帶服務提供商不可以屏蔽任何合法的內(nèi)容、應用、服務和設備。

* 不能限制（No Throttling） ：寬帶服務提供商不可以降低或者減慢合法的互聯(lián)網(wǎng)數(shù)據(jù)傳輸以及相關(guān)的應用、服務和設備訪問。

* 不允許付費優(yōu)先（No Paid Prioritization）：寬帶服務提供商不可以主動劃分數(shù)據(jù)傳輸?shù)膬?yōu)先等級并以此獲益，換句話說——沒有數(shù)據(jù)傳輸?shù)摹案顿M快車道”。

簡單總結(jié)，就是“不得屏蔽，不得限制，不得提供有償?shù)牟町惢尤敕铡薄?/p>

所有數(shù)據(jù)傳輸一視同仁，電信運營商不得在自己建設并管理的的網(wǎng)絡傳輸管道上區(qū)別性管理數(shù)據(jù)流。這個法令徹底剝奪了電信運營商數(shù)字化消費環(huán)節(jié)對于互聯(lián)網(wǎng)企業(yè)和客戶感知的掌控權(quán)，也讓電信運營商在數(shù)字化消費環(huán)節(jié)獲取增長服務收益的可能成為泡影。

同樣，《開放互聯(lián)網(wǎng)法令》也只適用于電信運營商，對互聯(lián)網(wǎng)企業(yè)沒有任何約束。在《開放互聯(lián)網(wǎng)法令》第二章第4節(jié)“規(guī)則適用范圍”（Scope of the Rules）中明確指出，“此開放互聯(lián)網(wǎng)規(guī)則適用于有關(guān)固網(wǎng)和移動寬帶訪問服務……此法令適用于面向公眾客戶寬帶網(wǎng)絡服務，即寬帶互聯(lián)網(wǎng)訪問服務……”

通過《寬帶客戶隱私保護規(guī)則》和《開放互聯(lián)網(wǎng)法令》，政府對電信行業(yè)和互聯(lián)網(wǎng)行業(yè)進行不對稱監(jiān)管，電信運營商只有在同質(zhì)化的互聯(lián)網(wǎng)接入服務領域自相殘殺，并終將蛻變?yōu)樗娒簹膺@樣的基礎設施服務行業(yè)。這也是符合奧巴馬為首的民主黨政府對電信行業(yè)定位的原則——公眾服務產(chǎn)業(yè)(Utility Service)。

反擊戰(zhàn)開打

2017年1月，特朗普就任美國總統(tǒng)。1月23日，上任才四天的特朗普總統(tǒng)任命Ajit Pai為新一屆美國聯(lián)邦通信委員會主席，替代奧巴馬總統(tǒng)時的主席Tom Wheeler。由此，電信運營商的反擊戰(zhàn)拉開序幕。

Ajit Pai上任伊始，就決定廢止《寬帶客戶隱私保護規(guī)則》。2月份眾議院投票，3月份參議員投票，4月3日總統(tǒng)簽字。只用了三個月，AjitPai就一路綠燈地走完所有程序，把剛生效六個月的《寬帶客戶隱私保護規(guī)則》徹底廢除，效率讓人瞠目。

4月23日，在《寬帶客戶隱私保護規(guī)則》被廢止后的20天，Ajit Pai在華盛頓發(fā)表公開講話，闡述了自己對于未來互聯(lián)網(wǎng)監(jiān)管的看法。

在這份題為“自由互聯(lián)網(wǎng)的未來”（THE FUTURE OF INTERNET FREEDOM）的講話中，他旗幟鮮明地提出，2015年通過的《開放互聯(lián)網(wǎng)法令》已經(jīng)嚴重阻礙了電信與互聯(lián)網(wǎng)行業(yè)的健康發(fā)展，現(xiàn)在是時候考慮要盡快廢止這個法令了。

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