The purpose of this study is to analyze the legal developments concerning the public administration’s role in making public data available to the public in accordance with the Swedish constitutional principle of publicity and the EU’s Public Sector Information legislation (PSI), including the open data directive, and the relationship between them. Furthermore, the study identifies trends and presents certain proposals for future legislation.
The public administration, with its large amounts of data, has in some sense always been data-driven. Nevertheless, through the development of big data over the past decades, the ability to store and analyze vast and varying amounts of data at an increasingly growing speed has made public data an even more valuable resource for different actors. This has led to the establishment of an information market based on public data. Public data can be made available for everyone either for a fee or for free in the form of for example Public Sector Information (PSI) or open data. Data from different agencies can be combined with one another and other private data sources, which continuously creates new areas of application. Within the EU this is framed as the data economy.
Public administrative bodies have therefore achieved a more active role as a catalyst for the data economy, which has been further institutionalized through legal regulations such as the act (2022:818) on the availability of public data, through which the EU open data directive has been implemented.
Nevertheless, this development entails important risks for both the individual and the nation state. There are underlying risks concerning mass surveillance, discrimination and disinformation. Democracy, the rule of law and fundamental rights, which form the basis of our legal order are at play and depend heavily on the choices we make regarding the use of this common resource. Moreover, there are important risks related to information security and not least national security, especially since it can turn into an impossible endeavor to sort out how and for what purposes these vast amounts of data are used or reused by unknown actors.
While there is a risk of abuse and overuse of public data, it can also be important to understand it can be a problem if we cannot use this resource in a manner which can lead to increased innovation, growth and welfare.
The current development regarding the further utilization of public information in what is now called the data economy is complex and multifaceted. This increases the need for an integrated regulatory framework. Currently, there are parallel regulations; 1) the national one which takes its starting point in the principle of openness which has its origin in a long tradition of the promotion of democracy and freedom of expression and counteracting corruption and 2) the EU’s PSI legislation with its market-oriented orientation. This in turn requires an overall strategy on the part of the legislator on how the regulations could be integrated in such a way that they enrich each other without putting fundamental values at risk.
Another important issue is which data should be accessible for reuse. This is a matter which requires a complex balancing of interests. This can, for example, involve the weighing of certain fundamental rights, such as the protection of personal data and the freedom of information, as well as balancing the need for open government versus national security and information security. There seems to be an apparent need for a central public organ with the necessary competencies to carry out these complex balancing acts.
The complex decision-making that the current legislation requires also faces challenges at the conceptual level. Different terms are used within the various regulations in a manner that can cause confusion. Furthermore, certain unexplained discrepancies have also been found in relation to the concept of data within data science and the legislation, which in turn can adversely affect both legal certainty and efficiency.
Another issue concerns the trend towards making public data available at low cost or for free. This is assumed to contribute to increased economic welfare in the form of increased employment, tax revenues and innovation, which is strongly reminiscent of the economic notion of dynamic effects. This should give rise to further evaluation, not least in order to make sure that other important interests are safeguarded both at the individual and the national level. It can also be argued that the fact that the companies involved are the beneficiaries of a state subsidy, as compared to most other business situations where the the “raw material” will not be provided by the state for free. Thus, there is a potential problem in relation to the principle of equality.
The study shows the need for finding ways to uphold and provide concrete meaning to the fundamental rights and values on which our legal order rests in the EU’s developing data economy.