I Introduction
Europeans have only recently realized their weaknesses and the risk of remaining at the margins of the fourth industrial revolutionFootnote 1 artificial intelligence (AI) is expected to bring about. Despite the existence of the single market, Europe industrial policy, including policy in the field of AI, still suffers from a lack of coordination and frequent duplications between member states. Moreover, investments in AI research and innovation remain limited when compared with Asia and North America.Footnote 2 As a result, European companies are in a weak position in terms of consumer application and online platforms, and industries are suffering from a structural disadvantage in the areas of data access, data processing and cloud-based infrastructures still essential for AI.
However, this gloomy overview calls for some nuance. The European Union (EU) and its member states are still well placed in the AI technological race, and the European economy benefits from several important assets, remaining not only an AI user but also, more critically, an AI producer. EuropeFootnote 3 is still a key player in terms of research centers and innovative start-ups and is in a leading position in sectors such as robotics, service sectors, automotive, healthcare and computing infrastructure. Perhaps more importantly, there is growing awareness in Europe that competition and the technological race for AI will be a matter of great significance for the future of the old continent’s economy, its recovery after the COVID-19 pandemic and, broadly speaking, the strategic autonomy of the EU and its member states.
The 2020 European Commission White Paper on Artificial Intelligence illustrates a form of European awakening.Footnote 4 This strategic document insists on the necessity of better supporting AI research and innovation in order to strengthen European competitiveness. According to the Commission, Europe should particularly seize the opportunity of the “next data wave” to better position itself in the data-agile economy and become a world leader in AI.Footnote 5 The Commission makes a plea for a balanced combination of the economic dimension of AI and a values-based approach as the development of AI-related technologies and applications raises new ethical and legal questions.Footnote 6
ProfilingFootnote 7 and automated decision-makingFootnote 8 are used in a wide range of sectors, including advertising, marketing, banking, finance, insurance and healthcare. Those processes are increasingly based on AI-related technologies, and the capabilities of big data analytics and machine learning.Footnote 9 They have enormous economic potential. However, services such as books, video games, music or newsfeeds might reduce consumer choice and produce inaccurate predictions.Footnote 10 An even more serious criticism is that they also can perpetuate stereotypes and discrimination bias.Footnote 11 Studies on this crucial issue are still rare because of a lack of access, as researchers often cannot access the proprietary algorithm.Footnote 12 In several European countries, including France, the opacity of algorithms used by the administration has become a political issue and has also provoked growing case lawFootnote 13 and legislative changes.Footnote 14 Finally, as the European Commission recently observed, AI increases the possibility to track and analyze people’s habits. For example, there is the potential risk that AI may be used for mass state surveillance and also by employers to observe how their employees behave. By analyzing large amounts of data and identifying links among them, AI may also be used to retrace and deanonymize data about persons, creating new personal data protection risks.Footnote 15
To summarize, the official European stance regarding AI combines a regulatory and an investment-oriented approach, with a twin objective of promoting AI and addressing the possible risks associated with this disruptive technology. This is indeed crucial as the public acceptance of AI in Europe is reliant on the conviction that it may benefit not only companies and decision-makers but also society as a whole. However, so far, especially when it comes to the data economy on which AI is largely based, public intervention in Europe has occurred through laws and regulations that are based on noneconomic considerations. The General Data Protection Regulation (GDPR)Footnote 16 is essential in this respect because it reflects how a human rights-based legal instrument might interfere with data-based economic principles. This 2016 regulation aims at enforcing a high standard of personal data protection that can limit the free flow of data, which is at the heart of the development of AI technologies.
Given the worldwide economic importance of the single market, the effects of this regulation are inevitably global. Many commentators rightly emphasized the extraterritorial effect of this European regulation, as a non-European company wishing to have access to the European market has no choice but to comply with the GDPR.Footnote 17 Moreover, the most recent generation of EU free trade agreements (FTAs) contains chapters on e-commerce and digital trade, under which the parties reaffirm the right to regulate domestically in order to achieve legitimate policy objectives, such as “public morals, social or consumer protection, [and] privacy and data protection”. Under the latest EU proposals, the parties would recognize cross-border data flows, but they would also be able to “adopt and maintain the safeguards [they] deem appropriate to ensure the protection of personal data and privacy, including through the adoption and application of rules for the cross-border transfer of personal data”.Footnote 18
The next section will present the growing debate on data protectionism (Section II). I will then study the EU’s approach toward data protection and assess whether the set of internal and international legal provisions promoted by the EU effectively translates into a meaningful balance between trade, innovation and ethical values (Section III). I will also describe the birth of European trade diplomacy in the field of digital trade, focusing the analysis on the most recent EU FTAs’ provisions and proposals. I will compare them with recent US-led trade agreements, such as the Trans-Pacific Partnership (TPP) and the United States-Mexico-Canada Agreement (USMCA), to assess whether the EU’s approach constitutes a model for future plurilateral or multilateral trade agreements (Section IV). In conclusion, I will assess whether the American and European approaches are reconcilable or destined to diverge given the opposing political and economic interests they translate.
II Data Protection or Data Protectionism?
Data has often been described as a contemporary raw material, a sort of postindustrial oil, and its free flow as the necessary condition for the convergence between globalization and digitalization. Data is at the heart of the functioning of AI, which is in turn the most important application of a data economy. The development of AI relies on the availability of data, and its value increases with detailed and precise information, including private information.Footnote 19 The availability and enhancement of data are crucial for the development of technologies, such as machine learning and deep learning, and offer a decisive competitive edge to companies involved in the global competition for AI.Footnote 20 Moreover, access to data is an absolute necessity for the emergence and development of a national and autonomous AI industry.Footnote 21 Not surprisingly, given the growing economic and political importance of data, governments and policy-makers are increasingly trying to assert control over global data flows. This makes sense as data, and in particular private data, is more and more presented as a highly political issue that has for too long been ignored in the public debate.Footnote 22
The current move toward digital globalization could be threatened by three types of policies: new protectionist barriers, divergent standards surrounding data privacy and requirements on data localization.Footnote 23 Data localization has also been depicted as “data protectionism” and a new form of nationalism,Footnote 24 or even anti-Americanism,Footnote 25 whereas others have advocated for a “digital sovereignty” that would imply the state’s power to regulate, limit or even prohibit the free flow of data.Footnote 26 Many countries are indeed subject to internal tensions between supporters of data openness as a catalyst for trade and technological development and those who promote comprehensive data protection in order to defend digital sovereignty as a prerequisite of national sovereignty. Old concepts and notions of international law, such as (digital) self-determination, (data) colonization, reterritorialization of data and (digital) emancipation, are also mobilized when it comes to justifying states’ “right to regulate” data. However, those general concepts often appear inadequate given the intrinsic nature of data flows and Internet protocol, which tend to blur the distinction between the global and the local. Data flows somehow render obsolete the traditional considerations of geographical boundaries and cross-border control that characterize classical international law.Footnote 27
Neha Mishra has thoroughly described different types of data-restrictive measures. State control can intervene using the physical infrastructures through which Internet traffic is exchanged, a local routing requirement and a variety of cross-border data flow restrictions, such as data localization measures or conditional restrictions imposed on the recipient country or the controller/processor.Footnote 28 Primary policy goals may justify those restrictions on the grounds of public order and moral or cultural issues. In Europe, the rationale behind the restrictions on the cross-border of data transfer and AI has been primarily addressed through the angle of data protection – that is, the defense and protection of privacy – as one of the most fundamental human rights.
This narrative extends well beyond the sole economic protection of European interests and has the enormous advantage of conciliating protectionist and nonprotectionist voices in Europe. It contrasts and conflicts with an American narrative based on freedom and technological progress, where free data flows are a prerequisite for an open and nondiscriminatory digitalized economy.
III The European Legal Data Ecosystem and Its Impacts on Artificial Intelligence and International Data Flows
The European Legal Framework on data, and in particular on data protection, is nothing new in the EU. It can be explained in the first place by internal European factors. European member states started to adopt their own law on the protection of personal information decades ago,Footnote 29 on the grounds of the protection of fundamental rights, and in particular the right to privacy, protected under their national Constitution, the European Convention on Human Rights and the European Charter of Human Rights, which forms part of current primary EU law. Therefore, EU institutions recognized early the need to harmonize their legislation in order to combine the unity of the single market and human rights considerations already reflected in member states’ legislation. It explains why, while some international standards, namely those of the Organisation for Economic Co-operation and Development (OECD)Footnote 30 and Asia-Pacific Economic Cooperation (APEC),Footnote 31 emphasize the economic component of personal data, the EU’s legal protection has been adopted and developed under a human rights-based approach toward personal data.Footnote 32
The 1995 European Directive was the first attempt to harmonize the protection of fundamental rights and freedoms of natural persons with respect to processing activities, and to ensure the free flow of data between member states.Footnote 33 However, a growing risk of fragmentation in the implementation of data protection across the EU and legal uncertainty justified the adoption of a new instrument that took the form of a Regulation, which is supposed to provide stronger uniformity in terms of application within the twenty-seven member states.Footnote 34
The GDPR also represents a regulatory response to a geopolitical challenge initiated by the United States and its digital economies to the rest of the world. From a political perspective, the Snowden case and the revelation of the massive surveillance organized by American agencies provoked a strong reaction among European public opinion, including within countries that had recently experimented with authoritarian regimes (such as the former East Germany and Poland).Footnote 35 The Facebook-Cambridge Analytica scandal further demonstrated that the freedom of millions of Europeans and their democracies was at stake and could be threatened by the digital hegemony of American tech companies with commercial interests. The demand for data protection against free and uncontrolled flows of data has also been encouraged by the progressive awareness of the economic and technological consequences of free data flows, as European companies appeared to be increasingly outpaced by their American rivals, especially in the field of AI. In parallel, in a spectacular ruling in 2015, the European Court of Justice annulled a decision of the European Commission, under which the United States was until then considered to be providing a sufficient level of protection for personal data transferred to US territory (under the so-called safe harbor agreement).Footnote 36
The GDPR has been both praised and criticized, within and outside of Europe. Still, it remains to a certain extent a legal revolution in the field of data regulation, not so much because of its content – it is not, after all, the first legal framework to deal with algorithms and data processing – but more because of the political message this legislation sends to the European public and the rest of the world.Footnote 37 Through the adoption of this Regulation in 2016, the EU has chosen to promote high standards for data protection. Every single European and non-European company that is willing to process European data, including those developing AI, must comply with the GDPR.Footnote 38
A European Data Protection’s Regulation and Artificial Intelligence
The GDPR regulates the processing of personal data; that is, any information relating to a directly or indirectly identified or identifiable natural person (“data subjects”). This legislation deals with AI on many levels.Footnote 39 First, it contains a very broad definition of “processing” as “any operation or set of operations which is performed on personal data or on sets of personal data, whether or not by automated means”.Footnote 40
It also regulates the conditions under which “personal data”Footnote 41 can be collected, retained, processed and used by AI. The GDPR is built around the concept of lawful processing of data,Footnote 42 meaning that personal data cannot be processed without obtaining individual consent or without entering into a set of limited categories defined under the Regulation.Footnote 43 That is a crucial difference between current American federal and state laws, which are based on the presumption that data processing is lawful unless it is explicitly prohibited by the authorities under specific legislation.Footnote 44
Under the GDPR, processing of personal data is subject to the lawfulness, fairness and transparency principles.Footnote 45 The Regulation also contains specific transparency requirements surrounding the use of automated decision-making, namely the obligation to inform about the existence of such decisions, and to provide meaningful information and explain its significance and the envisaged consequences of the processing to individuals.Footnote 46 The right to obtain information also covers the rationale of the algorithms, therefore limiting their opacity.Footnote 47 Individuals have the right to object to automated individual decision-making, including the use of data for marketing purposes.Footnote 48 The data subject has the right to not be subject to a decision based solely on automated decision-making when it produces legal effects that can significantly affect individuals.Footnote 49 Consent to the transfer of data is also carefully and strictly defined by the Regulation, which states that it should be given by a clear affirmative act from the natural person and establishes the principles of responsibility and liability of the controller and the processor for any processing of personal data.Footnote 50 Stringent forms of consent are required under certain specific circumstances, such as automated decision-making, where explicit consent is needed.Footnote 51
Therefore, under the GDPR, a controller that will use data collected for profiling one of its clients and identifying its behavior (for instance, in the sector of insurance) must ensure that this type of processing relies on a lawful basis. Moreover, the controller must provide the data subject with information about the data collected. Finally, the data subject may object to the legitimacy of the profiling.
Another illustration of the interference between AI technologies and GDPR is the requirements and limitations imposed on the use of biometric dataFootnote 52 for remote identification, for instance through facial recognition. The GDPR prohibits the process of biometric data “for the purpose of uniquely identifying a natural person” unless the data subject has given explicit consent.Footnote 53 Other limitations to this prohibition are exhaustively delineated, such as the “protection of the vital interests” of the data subject or other natural persons, or for reasons of “substantial public interest”. Most of those limited biometric identification purposes will have to be fulfilled according to a necessity and a proportionality test and are subject to judicial law review.Footnote 54
B Transatlantic Regulatory Competition
Despite its limitations and imperfections, the GDPR remains as a piece of legislation that aims to rightfully balance fundamental rights considerations with technological, economic and policy considerations in accordance with European values and standards. In contrast, US law surrounding the data privacy legal framework does not rely on human rights but, rather, on consumer protection, where the individual is supposed to benefit from a bargain with the business in exchange for its personal information (the so-called transactional approach).Footnote 55 Moreover, in contrast with Europe’s unified and largely centralized legislation, the American model for data protection has primarily been based on autoregulation and a sectoral regulation approach, at least until the 2018 adoption of the California Consumer Privacy Act (CCPA).Footnote 56
This state legislation partially resembles the GDPR. First, the CCPA is the first data protection statute that is not narrowly sectoral.Footnote 57 It defines “personal information” in a way that seems in practice equivalent to the GDPR’s personal data definition.Footnote 58 Personal information is also partially relevant to AI (such as biometric data, geolocalization and Internet, or other electronic network information). It also includes a broad definition of processing, which can include automated decision-making.Footnote 59 Echoing the GDPR’s transparency requirements, the CCPA provides a right of information, under which a consumer has the right to request that a business that collects consumers’ personal information disclose to that consumer the categories and specific pieces of personal information collected.Footnote 60 This right of disclosure is particularly significant.Footnote 61 The CCPA also contains a right to opt out and deny the possibility for a business to use its personal information.Footnote 62
Despite those similarities, important differences remain between the two statutes. Concretely, under the CCPA’s transactional approach, the right to opt out cannot be opposed if it is necessary to business or service providers to complete the transaction for which the personal information was collected or to enable solely internal uses that are reasonably aligned with the expectations of the consumer’s relationship with the business.Footnote 63 Moreover, whereas the GDPR rests on the principle of the “lawful processing of data”,Footnote 64 the CCPA does not require processing to be lawful, implying that data collection, use and disclosure is allowed unless it is explicitly forbidden. Whereas the GDPR requires some specific forms of consent related to sensitive data and limits individual automated decision-making, the CCPA “does nothing to enable individuals to refuse to give companies their data in the first place”.Footnote 65 Another striking difference is related to the consumer’s right not to be discriminated against under the CCPA if he or she decides to exercise the right to seek information or the right to opt out. The effect of this nondiscrimination principle seems tenuous as, in those circumstances, a business is not prohibited from charging a consumer a different price or rate, or from providing a different level or quality of goods or services to the consumer.Footnote 66 This is typically the result of a consumer protection-based approach, which in reality tolerates and admits discrimination (here, the price or the quality of the service provided), and a human rights-based approach that is much more reluctant to admit economic differentiations among individuals to whom those fundamental rights are addressed.
This brief comparison between the GDPR and the CCPA is not meant to suggest that one legislative model is intrinsically superior, more efficient, more legitimate or more progressive than the other. Both statutes merely translate ontological discrepancies between the European and American legal conceptions and policy choices. However, the conflict between those two models is inevitable when considering the current state of cross-border data flows. Not surprisingly, the question of extraterritoriality was crucial during the GDPR’s drafting.Footnote 67 Even though the Regulation is based on the necessity of establishing a single digital market, under which data protection and fundamental EU rights are equally guaranteed, its extraterritorial effects are expressly recognized as the GDPR applies “in the context of the activities of an establishment of a controller or a processor in the Union, regardless of whether the processing takes place in the Union or not” and “to the processing of personal data subjects who are in the Union by a controller or processor not established in the Union”.Footnote 68 The extraterritorial effects of the GDPR and, more broadly, of the EU’s legal framework are undeniable given the importance of the single EU market.Footnote 69 Extraterritoriality should be understood as a kind of “effet utile” of the Regulation, as most of the data processors and controllers are currently located outside the EU’s territory. The EU’s effort would in practice be doomed if personal data protection were to be limited to the EU borders.Footnote 70
The European legislator admits that flows of personal data to and from countries outside the EU are necessary for the expansion of international trade.Footnote 71 Yet, international data transfers must not undermine the level of data protection and are consequently subject to the Regulation’s provisions. Data transfer to third countries is expressly prohibited under the GDPR unless it is expressly authorized thanks to one of the legal bases established under the Regulation.Footnote 72 The European Commission may decide under the GDPR that a third country offers an adequate level of data protection and allow transfers of personal data to that third country without the need to obtain specific authorization.Footnote 73 However, such a decision can also be revoked.Footnote 74 In the absence of an adequacy decision, the transfer may be authorized when it is accompanied by “appropriate safeguards”, which can take the form of binding corporate rulesFootnote 75 or a contract between the exporter and the importer of the data, containing standard protection clauses adopted by the European Commission.Footnote 76 Even in the absence of an adequacy decision or appropriate safeguards, data transfer to third countries is allowed under the GDPR, in particular on the consent of the data subject, and if the transfer is necessary for the performance of a contract.Footnote 77
Under the current regime, the EU Commission adopted a set of adequacy findings with select third countries, such as Japan, in February 2019.Footnote 78 The European Commission also commenced adequacy negotiations with Latin American countries (Chile and Brazil) and Asiatic countries (Korea, India, Indonesia, Taiwan), as well as the European Eastern and Southern neighborhoods, and is actively promoting the creation of national instruments similar to the GDPR.Footnote 79 Moreover, in July 2016, the European Commission found that the EU-US Privacy Shield ensures an adequate level of protection for personal data that has been transferred from the EU to organizations in the USA, demonstrating regard for, inter alia, safeguards surrounding access to the transferred data by the United States’ intelligence services.Footnote 80 More than 5,300 companies have been certified by the US Department of Commerce in charge of monitoring compliance with a set of common data privacy principles under the Privacy Shield, which is annually and publicly reviewed by the Commission.Footnote 81 The Privacy Shield seemed to demonstrate that despite profound divergence between European and American approaches to data protection, there was still room for transatlantic cooperation and mutual recognition. However, in mid-July 2020, the European Court of Justice (ECJ) concluded that the Commission’s Privacy Shield decision was invalid as it disregarded European fundamental rights.Footnote 82 As the Court recalled, the Commission must only authorize the transfer of personal data to a third country if it provides “a level of protection of fundamental rights and freedoms essentially equivalent to that guaranteed within the European”.Footnote 83 The ECJ found lacunae in judicial protections for European data subjects against several US intelligence programs.Footnote 84
The question of data transfer between the EU and UK after Brexit is one of the many hot topics that should be dealt with in a future EU/UK trade agreement, and it is a perfect example of the problematic nature of the GDPR’s application to EU third countries with closed economic ties. The October 2019 political declaration setting out the framework for the future relationship between the two parties contains a specific paragraph on digital trade that addresses the question of data protection. It says that future provisions on digital trade “should … facilitate cross-border data flows and address unjustified data localisation requirements, noting that this facilitation will not affect the Parties’ personal data protection rules”.Footnote 85 However, in June 2020, six months after Brexit, the Commission was still uncertain regarding a future UK adequacy assessment because of a lack of specific data protection commitment in the UK. Moreover, the British government indicated that it wanted to develop a separate and independent data protection policy.Footnote 86 One of the EU’s main concerns is that through bilateral agreements concluded between the UK and the USA, data belonging to EU citizens could be “siphoned off” to the United States.Footnote 87
The issue of compatibility between European privacy rules and the Chinese legal framework is also a growing matter of concern for Europeans. China applies much stricter data border control on the grounds of national security interests. For instance, the 2017 Chinese law on cybersecurity provides that companies dealing with critical infrastructures of information, such as communications services, transport, water, finances, public services energy and others, have an obligation to store their data in the Chinese territory. Such a broad definition can potentially affect all companies, depending on the will of Chinese authorities, who also have broad access to personal information content on the grounds of national security.Footnote 88 However, Chinese attitudes regarding privacy protection are not monolithic. According to Samm Sacks, “[t]here is a tug of war within China between those advocating for greater data privacy protections and those pushing for the development of fields like AI and big data, with no accompanying limits on how data is used”. This expert even describes a growing convergence between the European and Chinese approaches in data protection regimes, leading the USA to be more isolated and American companies to be more reactive.Footnote 89 However, based on the model of the recent conflict between European data privacy rules and US tech companies’ practices, emerging cases that shed new light on data protection regulatory divergence between China and the EU are inevitable.Footnote 90
Fragmentation and market barriers are emerging around requirements for privacy and data flows across borders. Can this fragmentation be limited through international trade law? What is the EU’s position on international data flows and data protection in the context of its trade policy? Can and should European trade agreements become an efficient way to promote the GDPR’s privacy approach?
IV The Birth of European Digital Trade Diplomacy
Not surprisingly, given its imprecise nature, AI is not covered as such by trade agreements, although AI technologies that combine data, algorithms and computing power can be affected by trade commitments in the field of goods and services. In this section, I will focus on the issue of the trade dimension of cross-border data flows, given its strategic relevance to AI applications. Although data cannot be assimilated to traditional goods or services, trade rules matter with regard to data in multiple ways.Footnote 91 As I have already noted, even though regulating data flows on national boundaries might seem counterintuitive and inefficient,Footnote 92 states and public authorities are tempted to regain or maintain control of data flows for many reasons, ranging from national security to data protection to economic protectionism. A trade agreement is one international public law instrument that might constitute a legal basis to promote cross-border data control or, on the contrary, the free flow of data principle.
A A Limited Multilateral Framework
Despite recent developments, digital trade rules currently remain limited, both at the multilateral and the bilateral level. World Trade Organization (WTO) disciplines do not directly confront the problematic nature of digital trade or AI, even though the WTO officially recognizes that AI, together with blockchain and the Internet of Things, is one of the new disruptive technologies that could have a major impact on trade costs and international trade.Footnote 93 Mira Burri has, however, described how WTO general nondiscrimination principles – Most Favorable Nation Treatment and National Treatment – could potentially have an impact on the members’ rules and practices regarding digital trade, as well as more specific WTO agreements, especially the General Agreement on Trade in Services (GATS).Footnote 94 She notes that WTO members have made far-reaching commitments under the GATS. The EU in particular has committed to data processing services, database services and other computing services.Footnote 95 These commitments might prohibit new measures with regard to search engines that limit market access or discriminate against foreign companies, as they should be considered data processing services. Localization requirements with regard to computer and related services would also be prima facie GATS-inconsistent, but could well be justified under the agreement’s general exceptions.Footnote 96
Despite a few updates, such as the Information Technology Agreement, WTO members have failed, as in other fields, to renovate and adapt proper WTO disciplines to strategic issues, such as digital trade and AI. The current plurilateral negotiations on e-commerce, which involve seventy-nine members including China, Japan, the USA and the EU and its member states, might represent a new opportunity to address these issues.Footnote 97 However, given the current state of the WTO, such evolution remains, at present, hazardous.Footnote 98 So far, the most relevant provisions on digital trade are those negotiated within the bilateral or plurilateral trade deals, beginning with the TPP.Footnote 99
Recent developments in EU digital trade diplomacy can be seen as a reaction to the United States’ willingness to develop an offensive normative strategy whose basic aim is to serve its big tech companies’ economic interests and to limit cross-border restrictions based on data privacy protection as much as possible.
B The US Approach to Digital Trade Diplomacy
The United States’ free trade agreement (FTA) provisions on digital trade are the result of the Digital Agenda that was endorsed in the early 2000s. Several US trade agreements containing provisions on e-commerce have been concluded by different American administrations over the last two decades.Footnote 100 In 2015, the United States Trade Representative described the TPP as “the most ambitious and visionary internet agreement ever attempted”.Footnote 101 The TPP provisions relate to digital tradeFootnote 102 in various respects, including, inter alia, nondiscriminatory treatment of digital products,Footnote 103 a specific ban of custom duties on electronic transmissionFootnote 104 and free supply of cross-border digital services.Footnote 105 More specifically, despite recognizing the rights of the parties to develop their own regulatory requirements concerning the transfer of information by electronic means, the agreement prohibits the limitation of cross-border transfer of information by electronic means, including personal information.Footnote 106 Additionally, under the TPP, “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”.Footnote 107 US tech companies were deeply satisfied with the content of the agreement.Footnote 108
However, the TPP drafters did not ignore the problematic nature of personal information protections. Indeed, the text of this agreement recognized the economic and social benefits of protecting the personal information of users of electronic commerce.Footnote 109 It even indicated that each party shall adopt or maintain a legal framework that provides for the protection of the personal information of the users of electronic commerce, therefore admitting the possibility of following different legal approaches. However, each party should adopt instruments to promote compatibility between the different legal frameworks,Footnote 110 and the agreement’s wording is relatively strong on the nondiscriminatory practices in terms of user protections.
The GDPR was still under discussion when the TPP was concluded. However, there is room for debate concerning the possible compatibility of the European legislation and this US trade treaty. As with the WTO compatibility test, the main issue concerns the possible discriminatory nature of the GDPR, which in practice is arguable. This doubt certainly constituted an incentive for the EU to elaborate upon and promote its own template on digital trade, in order to ensure that its new legislation wouldn’t be legally challenged by its trade partners, including the US administration.
Just like the TPP, the USMCA contains several provisions that address digital trade, including a specific chapter on this issue.Footnote 111 It also prohibits custom duties in connection with digital productsFootnote 112 and protects source code.Footnote 113 The prohibition of any cross-border transfer or information restriction is subject to strong wording, as the agreement explicitly provides that “[n]o Party shall prohibit or restrict the cross border transfer of information, including personal information, by electronic means if this activity is for the conduct of the business of a covered person”.Footnote 114 Yet, the USMCA admits the economic and social benefits of protecting the personal information of users of digital trade and the relevance of an internal legal framework for the protection of this information.Footnote 115 However, the conventional compatibility of internal regulations that would limit data collection relies on a necessity and proportionality test and a nondiscrimination requirement. In any case, the burden of proving compatibility will undoubtedly fall on the party that limited data transfer in the first place, even though it did so on the grounds of legitimate policy objectives. Under these circumstances, the legality of GDPR-style legislation would probably be even harder to argue than under the former TPP.
C The European Union’s Response to the American Trade Regulatory Challenge
Before studying the precise content of existing EU agreements and proposals on digital trade, one should bear in mind that European trade policy is currently subject to strong internal tensions. Trade topics have become increasingly politicized in recent years, especially in the context of the Comprehensive Economic and Trade Agreement (CETA) and Transatlantic Trade and Investment Partnership (TTIP) negotiations. It is not only member states, through the Council, and the European Parliament – which has obtained, after the Lisbon Treaty, the power to conclude trade agreements together with the Council – that have placed pressure on the Commission. Pressure has also come from European civil society, with movements organized at the state and the EU level.Footnote 116 As a result, the idea that trade deals should no longer be a topic for specialists and be subject to close political scrutiny is gaining ground in Europe. As a response, the capacity of trade agreements to better regulate international trade is now part of the current Commission’s narrative to advocate for the necessity of its new FTA generation,Footnote 117 in line with European primary law provisions that connect trade with nontrade policy objectives.Footnote 118 The most recent generation of EU FTAs incorporate a right to regulate, which is reflected in several provisions, in particular in the context of the sustainable developmentFootnote 119 and investment chapters.Footnote 120 More recently, the EU also showed a willingness to include a right to regulate in the digital chapter’s provisions.Footnote 121 Paradoxically, the recall of the state power to regulate is the prerequisite of stronger trade liberalizationFootnote 122 and, more broadly, a way in which to legitimize the extension of trade rules.
Older trade agreements, meaning those concluded before 2009, when the Lisbon Treaty entered into force, remained practically silent on the issue of digital trade or electronic commerce. The EU-Chile (2002) trade agreement is probably the first FTA that contains references to e-commerce, probably under the influence of the US-Chile FTA concluded during the same period. However, the commitments were limited as they refer to vague cooperation in this domain.Footnote 123 Moreover, the service liberalization was strictly contained within the limits of the positive list-based approach of the former generation of European FTAs.Footnote 124 The EU-Korea FTA of 2011 contains more precise provisions on data flows, yet it is limited to specific sectors.Footnote 125 For instance, Article 7.43 of this agreement, titled “data processing”, is part of a broader subsection of the agreement addressing financial services. The provision encourages free movement of data. Yet, it also contains a safeguard justified by the protection of privacy. Moreover, the parties “agree that the development of electronic commerce must be fully compatible with the international standards of data protection, in order to ensure the confidence of users of electronic commerce”. Finally, under this agreement, the cross-border flow of supplies can be limited by the necessity to secure compliance with (internal) laws or regulations, among which is the protection of the privacy of individuals.Footnote 126 Although limited to specific sectors, those provisions demonstrate that the EU was aware of the potential effect of data protection on trade long before the adoption of the GDPR.Footnote 127
This sectoral approach has been followed by the EU and its partners in more recent trade agreements, such as the CETA between the EU and Canada, which was concluded in 2014.Footnote 128 Chapter 16 of the CETA agreement deals expressly with e-commerce. It prohibits the imposition of customs duties, fees or charges on deliveries transmitted by electronic means.Footnote 129 It also states that “[e]ach Party should adopt or maintain laws, regulations or administrative measures for the protection of personal information of users engaged in electronic commerce and, when doing so, shall take into due consideration international standards of data protection of relevant international organizations of which both Parties are a member”.Footnote 130 However, the CETA also contains another innovative and broader exception clause based on data protection. Article 28.3 addresses the general exception to the agreement, and provides that several chapters of the agreement (on services and investment, for instance) can be subject to limitation based on the necessity to “secure compliance with laws or regulations which are not inconsistent with the provisions of this Agreement including those relating to … the protection of the privacy of individuals in relation to the processing and dissemination of personal data”. Finally, the CETA agreement, unlike the US model, does not contain a general free data flow provision and only promotes specific forms of data transfer, consistent with European economic interests, such as financial transfers for data processing in the course of business.Footnote 131
The current European strategy regarding trade and data protection appears more clearly in the negotiations after the adoption of the GDPR. In 2018, the European Commission made public proposals on horizontal provisions for cross-border data flows, and for personal data protection in EU trade and investment agreements.Footnote 132 This template is an attempt to reconcile diverging regulatory goals, in particular human rights considerations and economic considerations.Footnote 133 This conciliation is also symbolized by the internal conflict, inside the Commission, between the Directorate General for Trade (DG Trade), traditionally in charge of trade negotiations, and the Directorate General for Justice and Consumers (DG JUST). DG Trade has shown greater sensitivity toward cross-border data flows, whereas DG JUST conceived trade law as an instrument to expand Europe’s privacy protections.Footnote 134 As a result, this template supports cross-border data flows while also immediately recognizing that the protection of data and privacy is a fundamental right. Therefore, the protection of data privacy is exempted from any scrutiny.Footnote 135 This privacy safeguard uses the wording from a clause to the national security exceptions and contrasts with the necessity and proportionality tests put in place under the TPP and USMCA. Not surprisingly, this privacy carve-out was immediately criticized by tech business lobbyists in Brussels.Footnote 136
However, the EU proposals formulated in late 2018, under the framework of the negotiation of two new FTAs with Australia and New Zealand (initiated in 2017), largely confirmed the template’s approach. First, the EU’s proposed texts refer to the right of the parties to regulate within their territories to achieve legitimate objectives, such as privacy and data protections.Footnote 137 These proposals also further cross-border data flows in order to facilitate trade in the digital economy and expressly prohibit a set of restrictions, among which are requirements relating to data localization for storage and processing, or the prohibition of storage or processing in the other party’s territory. Moreover, the proposals protect the source code, providing that, in principle, the parties cannot require the transfer of, or access to, the source code of software owned by a natural or juridical person of the other party.Footnote 138 A review clause on the implementation of the latter provision, in order to tackle possible new prohibitions of cross-border data flows, is included. Additionally, the European proposals allow the parties to adopt and maintain safeguards they deem appropriate to ensure personal data and privacy provisions. The definition of personal data is similar to the GDPR’s conception.Footnote 139 This approach is also in line with the EU’s proposal, formulated within the context of the plurilateral negotiations regarding e-commerce, which took place at the WTO in April 2019.Footnote 140
The ability of the EU to persuade its trading partners to endorse its vision on digital trade remains uncertain. In this context, the content of the Digital Chapter of the recently concluded FTA between the EU and Japan is not very different from the CETA,Footnote 141 demonstrating the absence of real common ground and Japanese support on this issue. Whereas the JEFTA is an ambitious text in a wide range of sensitive trade matters (such as geographical indications, service liberalization and the link between trade and the environment), it only refers to a vague review clause regarding digital trade and free data flows.Footnote 142 However, as mentioned earlier, the question of cross-border data flows between Japan and the EU has been dealt with through the formal process that led Japan to reform its legal framework on data protection, which in turn led to the Commission’s 2019 adequacy decision.Footnote 143 Unilateral instruments remain, for the EU, the de facto most efficient tools when it comes to the promotion of its conception of data protection.Footnote 144
V Conclusion
The entry into force of the GDPR coincides with a new era of international trade tensions, which might be interpreted as a new symbol of the European “New, New Sovereigntism” envisioned by Mark Pollack.Footnote 145 The European way of addressing the issue of data processing and AI is, in reality, illustrative of the limits of the current European integration process. European industrial policies in this field have been fragmented among the member states, which have not achieved the promise of a single digital market and, even more problematically, have not faced strong international competition. So far, the EU’s response to this challenge has been mostly legal and defensive in nature. Yet, such a strategy is not in itself sufficient to address the challenges raised by AI. Smart protectionism might be a temporary way for Europe to catch up with the United States and China, but any legal shield will in itself prove useless without a real industrial policy that necessitates not only an efficient regulatory environment but also public investment and, more broadly, public support. The post-COVID-19 European reaction and the capacity of the EU and its member states to coordinate their capacities, modeled on what has been done in other sectors such as the aeronautic industry, will be crucial. After all, the basis of the European project is solidarity and the development of mutual capacity in strategic economic areas, such as coal and steel in the 1950s, and a context of crisis and the risk of a decline of the “old continent” may serve as a strong catalyst for an efficient European AI policy.
On a more global and general level, the analysis of the GDPR and the European trade position on data flows and AI illustrates that this new and disruptive sector has not escaped the existing tensions between free trade and protectionism. Unsurprisingly, the new digital trade diplomacy is subject to an old rule: negotiators’ positions are largely influenced by economic realities and the necessity to promote a competitive industry or to protect an emerging sector, respectively. Fundamental rights protection considerations that led to a form of “data protectionism” in the EU are certainly also influenced by its economic agenda. On the other hand, the US promotion of free flows of data essentially responds to the interest of its hegemonic companies and their leadership on the Internet and AI. The admission of the free data flows principle from the EU might correspond to the growing presence of data centers in the EU’s territory, which followed the entry into force of the GDPR, given the necessity to comply with this regulation.Footnote 146 It can also be interpreted as a hand up to its trade partner, in exchange for the admission of a large data privacy carve-out that would legally secure the GDPR under international trade law. However, unless extremely hypothetical political changes occur and a willingness to forge a transatlantic resolution or a multilateral agreement on these questions materializes, the fragmentation of the digital rules on data transfer will likely remain a long-term reality.
Open access