The Generative Mechanism, Scientific System, and Practical Requirements of Xi Jinping’s Important Discourse on Comprehensive Cyberspace Governance

The Third Plenary Session of the 20th Central Committee of the CPC made important arrangements for “improving the comprehensive cyberspace governance system,” emphasizing the need to “deepen the reform of the network management system, integrate the functions of network content construction and management,” and “strengthen the rule of law in cyberspace and improve the long-term mechanism for network ecological governance.”[1]1 Xi Jinping, "Hold High the Great Banner of Socialism with Chinese Characteristics and Strive in Unity to Build a Modern Socialist Country in All Respects — Report to the 20th National Congress of the Communist Party of China," *People's Daily*, October 26, 2022. This important discourse clarifies the overall objectives, focal points, and specific tasks of comprehensive cyberspace governance, and interprets the important role of comprehensive cyberspace governance in advancing the modernization of the national governance system and governance capacity. Since the beginning of the New Era, Xi Jinping, on the basis of a scientific analysis of the current state and development trends of cyberspace governance, has formed an important discourse on comprehensive cyberspace governance for the New Era, which serves as the fundamental guidance for promoting China’s cyberspace governance to continuously deepen. Based on this, analyzing the generative mechanism of Xi Jinping’s important discourse on comprehensive cyberspace governance, grasping its scientific system, and clarifying its practical requirements are of great theoretical and practical significance for accelerating the improvement of the comprehensive cyberspace governance system and creating a healthy online ecosystem.

党的二十届三中全会对“健全网络综合治理体系”作出重要部署，强调“深化网络管理体制改革，整合网络内容建设和管理职能”，“加强网络空间法治建设，健全网络生态治理长效机制”[1]。这一重要论述明确了网络综合治理的总体目标、聚焦重点与具体任务，诠释了网络综合治理对于推进国家治理体系和治理能力现代化的重要作用。新时代以来，习近平在科学分析网络治理现状和发展趋势的基础上，形成了新时代网络综合治理的重要论述，是推进我国网络治理不断迈向纵深的根本遵循。基于此，分析习近平关于网络综合治理重要论述的生成机理，把握其科学体系，明确其实践要求，对于加快健全网络综合治理体系，营造良好网络生态有着重要的理论与现实意义。

I. The Generative Mechanism of Xi Jinping’s Important Discourse on Comprehensive Cyberspace Governance

一、习近平关于网络综合治理重要论述的生成机理

Xi Jinping’s important discourse on comprehensive cyberspace governance is a dialectical unity of history and reality, theory and practice. It is an inevitable theoretical outcome rooted in the concept of comprehensive social governance of China and the experience of cyberspace governance since China’s full access to the internet, objectively summarizing the practical achievements of China’s cyberspace governance in the New Era, and scientifically responding to the practical needs of China’s future cyberspace governance. It presents a clear generative logic.

习近平关于网络综合治理的重要论述是历史与现实、理论与实践的辩证统一，是以习近平同志为核心的党中央根植我国社会综合治理理念和入网后网络治理经验，客观总结新时代我国网络治理实践成果，科学回应未来我国网络治理现实需求的必然理论成果，呈现出清晰的生成理路。

(I) Deepening and Expanding China’s Concept of Comprehensive Social Governance

（一）对我国社会综合治理理念的深化拓展

The conceptual meaning of “comprehensive cyberspace governance” can trace its theoretical lineage from the concept of “comprehensive governance.” “Comprehensive governance” originated in the field of public security, dating back to the “Fengqiao Experience” [n1] endorsed by Mao Zedong in the early 1960s, which involved mobilizing and relying on the masses to resolve social conflicts locally. In the early period of reform and opening up, the national focus shifted to economic construction, but social governance issues became prominent and crime problems serious. Therefore, the “Fengqiao Experience” once again played an important role in governing social issues, resolving mass conflicts, and settling disputes locally. In June 1981, the Party Central Committee formally proposed the policy of implementing “comprehensive governance” of public security, making specific provisions on the scope and principles for implementing the work of “comprehensive governance of public security.”[3]3 The term "comprehensive cyberspace governance" (网络综合治理) refers to the CPC's integrated approach to managing the internet, involving multiple stakeholders (Party, government, enterprises, society, and individuals) to maintain order and security online, as distinct from purely technical or legal regulation. Subsequently, the discourse of “comprehensive governance of public security” initially took shape. In March 1991, the Standing Committee of the National People’s Congress adopted the “Decision on Strengthening Comprehensive Governance of Public Security,” marking the recognition and promotion of comprehensive governance at the legal level. Xi Jinping pointed out: “We must strengthen and innovate grassroots social governance, and uphold and develop the ‘Fengqiao Experience’ for the New Era.”[4]4 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 319.61 With the continuous deepening of the concept of “comprehensive governance,” it has expanded from the initial social field to many aspects of national governance, forming a methodological system of “comprehensive governance.” In essence, comprehensive governance is a new type of governance concept relative to traditional holistic governance, characterized by the diversification of governance subjects, diversity of means, and networking of structures, initially showing a trend of collaborative governance. The deepening and expansion of this concept provided the cognitive foundation for the generation of Xi Jinping’s important discourse on comprehensive cyberspace governance.

“网络综合治理”的概念意蕴可以从“综合治理”这一概念中寻找理论脉络。“综合治理”肇始于社会治安领域，最早可追溯到20世纪60年代初期毛泽东批示的“枫桥经验”，即发动群众、依靠群众，就地解决社会矛盾的做法。[2]改革开放初期，国家工作中心转移至经济建设，但社会治理问题凸显、犯罪问题突出。因此，“枫桥经验”在治理社会问题、化解群众矛盾、就地解决纠纷等方面再次发挥重要作用。1981年6月，党中央正式提出对社会治安实行“综合治理”的方针，对落实“社会治安综合治理”工作的范围、原则作出了具体规定。[3]8此后，“社会治安综合治理”的话语初步形成。1991年3月，全国人大常委会通过了《关于加强社会治安综合治理的决定》，标志着综合治理在法律层面得到认可与推广。习近平指出：“要加强和创新基层社会治理，坚持和完善新时代‘枫桥经验’。”[4]61随着“综合治理”概念的不断深化，已然从最初的社会领域扩展至治国理政的诸多方面，形成了“综合治理”的方法论体系。质言之，综合治理是一种相对于传统总体性治理的新型治理理念，其特点在于治理主体的多元化、手段的多样性、结构的网络化，初步展现出协同治理的趋势。这一概念的深化拓展为习近平关于网络综合治理重要论述的生成提供了认识基础。

(II) Deep Accumulation of Cyberspace Governance Experience Since China’s Full Access to the Internet

（二）对我国入网后网络治理经验的深刻积淀

In 1994, China gained full functional access to the internet, and during the same period, China’s cyberspace governance gradually began. In the “Interim Regulations of the People’s Republic of China on the Management of International Networking of Computer Information Networks,” it was pointed out that “the state implements the principles of overall planning, unified standards, hierarchical management, and promoting development for international networking,”[5] emphasizing the need to do a good job in network information security management to ensure the provision of good and safe services to users. Jiang Zemin emphasized that our basic policy on the issue of information networking is “actively develop, strengthen management, seek advantages and avoid disadvantages, make it serve our purposes, and strive to occupy an active position in the development of global information networking.”[6]270 Subsequently, the “Administrative Measures for Internet Information Services” and the “Decision on Maintaining Internet Security” were successively promulgated, further promoting the development of China’s cyberspace governance. Entering the 21st century, China’s internet industry gradually ranked among the world’s top. The Party and the state emphasized the need to effectively build, use, and manage the internet well, implementing the requirement of “one hand grasping development, one hand grasping management”[7]562 in all aspects of internet development. Hu Jintao proposed a new policy for internet development and management of “active use, scientific development, law-based management, and ensuring security,”[8]504 requiring the formation of a “comprehensive internet management pattern with unified leadership of the Party committee, strict management by the government, lawful operation by enterprises, enhanced industry self-discipline, and joint supervision by the whole society.”[8]505 At this time, China’s cyberspace governance was still in an exploratory stage, focusing on “management” rather than “governance,” with lag in handling problems and responding to crises. However, the internet development and management experience of this period provided an accumulation of experience for the generation of Xi Jinping’s important discourse on comprehensive cyberspace governance.

1994年，中国全功能接入互联网，同一时期我国网络治理也渐趋起步。在《中华人民共和国计算机信息网络国际联网管理暂行规定》中，指出了“国家对国际联网实行统筹规划、统一标准、分级管理、促进发展的原则”[5]，强调要做好网络信息安全管理工作，确保为用户提供良好、安全的服务。江泽民强调，对信息网络化问题，我们的基本方针是“积极发展，加强管理，趋利避害，为我所用，努力在全球信息网络化的发展中占据主动地位”[6]270。此后，《互联网信息服务管理办法》《关于维护互联网安全的决定》相继颁布，进一步推动我国网络治理的发展。进入21世纪，我国互联网事业逐渐跻身世界前列。党和国家强调要切实把互联网建好用好管好，将“一手抓发展、一手抓管理”[7]562的要求贯彻到互联网发展各方面。胡锦涛提出“积极利用、科学发展、依法管理、确保安全”[8]504的互联网发展管理新方针，要求形成“党委统一领导、政府严格管理、企业依法运营、行业加强自律、全社会共同监督的互联网综合管理格局”[8]505。此时我国的网络治理还处于探索阶段，重点在“管”而不是“治”，在处理问题、应对危机时存在滞后性。但这一时期的互联网发展和管理经验，为习近平关于网络综合治理重要论述的生成提供了经验积淀。

(III) Intelligent Integration of the Achievements of China’s Cyberspace Governance in the New Era

（三）对新时代我国网络治理成果的智慧集成

Entering the New Era, Xi Jinping has attached great importance to internet development and governance, emphasizing: “If we cannot pass the test of the internet, we cannot pass the test of long-term governance,”[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.3 and “Whoever masters the internet grasps the initiative of the times.”[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.41 The Party and the state have made overall arrangements for advancing cyberspace governance, forming a mutually reinforcing overall pattern at the core levels of network content construction, internet legislation, and network security and informatization. The “National Informatization Development Strategy Outline” pointed out the need to “establish a network governance system combining legal norms, administrative supervision, industry self-discipline, technical support, public oversight, and social education,”[10] marking the beginning of China’s gradual transition from “network management” to “network governance.” Based on this, Xi Jinping creatively proposed the important proposition of “comprehensive cyberspace governance,” pointing out the need to “establish a comprehensive cyberspace governance system and create a clear and bright cyberspace.”[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.74 Subsequently, Xi Jinping has delivered important speeches and made clear requirements on “comprehensive cyberspace governance” on multiple occasions, constructing the “four beams and eight pillars” [n2] of comprehensive cyberspace governance. The report of the 20th National Congress of the CPC proposed to “improve the comprehensive cyberspace governance system and promote the formation of a good network ecology,”[11]36 pointing out the key tasks for the next stage of comprehensive cyberspace governance. In July 2023, Xi Jinping made important instructions on network security and informatization work, putting forward the important judgment that “the comprehensive cyberspace governance system has been basically established, and the network security guarantee system and capabilities have been continuously improved,”[12] marking a comprehensive transformation of China’s comprehensive cyberspace governance system from “establishment” to “improvement.” These governance achievements are the vivid practice of Xi Jinping’s important discourse on comprehensive cyberspace governance.

进入新时代，习近平高度重视互联网发展和治理工作，强调：“过不了互联网这一关，就过不了长期执政这一关”[9]3，“谁掌握了互联网，谁就把握住了时代主动权”[9]41。党和国家对推进网络治理工作进行了总体部署，在网络内容建设、互联网领域立法、网络安全和信息化等核心层面形成了相互促进的整体格局。《国家信息化发展战略纲要》中指出，要“建立法律规范、行政监管、行业自律、技术保障、公众监督、社会教育相结合的网络治理体系”[10]，标志着我国逐步开始了从“网络管理”向“网络治理”的过渡。基于此，习近平创造性地提出“网络综合治理”这一重要命题，指出要“建立网络综合治理体系，营造清朗的网络空间”[9]74。此后，习近平多次就“网络综合治理”发表重要讲话、提出明确要求，建构了网络综合治理的“四梁八柱”。党的二十大报告提出，要“健全网络综合治理体系，推动形成良好网络生态”[11]36，指出了下一阶段网络综合治理的重点任务。2023年7月，习近平对网络安全和信息化工作作出重要指示，提出“网络综合治理体系基本建成，网络安全保障体系和能力持续提升”[12]的重要论断，标志着我国网络综合治理体系实现由“建立”到“健全”的综合转变。这些治理成果是习近平关于网络综合治理重要论述的生动实践。

(IV) Forward-looking Response to the Future Needs of China’s Cyberspace Governance

（四）对未来我国网络治理需求的前瞻回应

As of December 2024, the number of internet users in China reached 1.108 billion, with an internet penetration rate of 78.6%.[13] Cyberspace has become a new space for people’s production and life, and naturally a new domain for national governance. With its openness, equality, and inclusiveness, cyberspace meets the increasingly diverse and pluralistic material, spiritual, and cultural needs of the people, but its anonymity, virtuality, and fluidity also foster the spread of online rumors, online fraud, and other disorders. In recent years, China’s comprehensive cyberspace governance has achieved notable results, and the overall online ecological environment has improved. Yet online disorders persist, and online problems continue to appear in new forms of expression and modes of transmission, disrupting the good order of cyberspace. “Cyberspace is the common spiritual home of hundreds of millions of people.”[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.71 Faced with this complex situation, Xi Jinping has profoundly perceived the urgency and difficulty of China’s future cyberspace governance, emphasizing the need to “create a clear and bright cyberspace”[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.74, develop a positive and uplifting online culture, and provide fair and universally beneficial online information services, so as to better meet the people’s new demands and expectations for cyberspace. In the future, China’s cyberspace governance will exhibit characteristics of greater diversification, refinement, and intelligence. On the one hand, as technology is constantly updated, online problems will appear in more concealed and complex forms, raising higher requirements for the precise identification, rapid response, and efficient handling capabilities of cyberspace governance. On the other hand, the people’s demands for cyberspace will also upgrade and shift, taking on more diverse and higher-level features. In view of this, Xi Jinping’s important discourse on comprehensive cyberspace governance provides directional guidance for China’s future cyberspace governance work.

截至2024年12月，我国网民规模达11.08亿人，互联网普及率达到78.6%。[13]网络空间成为人们生产生活的新空间，自然也成为国家治理的新领域。网络空间以其开放性、平等性、包容性满足了人民群众日益多样、多元的物质和精神文化需求，但也因其匿名性、虚拟性、流变性等特征，助长了网络谣言、网络诈骗等乱象的滋生蔓延。近年来，我国网络综合治理取得显著成效，网络生态环境整体向好，但网络乱象依旧存在，网络问题不断以新的表现形态、传播方式出现，扰乱网络空间良好秩序。“网络空间是亿万民众共同的精神家园。”[9]71面对这一复杂形势，习近平深刻洞察未来我国网络治理的紧迫性与艰巨性，强调要“营造清朗的网络空间”[9]74，发展积极向上的网络文化，提供公平普惠的网络信息服务等，以更好满足人民群众对于网络空间的新需求、新期待。未来我国网络治理将呈现出更加多元化、精细化、智能化的特点。一方面，随着技术的不断更新，网络问题将以更加隐蔽、复杂的形式出现，对网络治理的精准识别、快速响应和高效处置能力提出更高要求。另一方面，人民群众对于网络空间的需求也将升级跃迁，并呈现出更加多样、更加高阶的特征。鉴于此，习近平关于网络综合治理的重要论述，为未来我国网络治理工作提供了方向指引。

II. The Scientific System of Xi Jinping’s Important Discourse on Comprehensive Cyberspace Governance

二、习近平关于网络综合治理重要论述的科学体系

Based on the new historical juncture and development requirements, Xi Jinping has made comprehensive, systematic, and forward-looking expositions on the governance philosophy, governance structure, governance content, and governance means of comprehensive cyberspace governance, forming a logically rigorous and systematically complete theoretical system.

立足新的时代方位和发展要求，习近平围绕网络综合治理的治理理念、治理结构、治理内容、治理手段等方面展开了全局性、系统性、前瞻性论述，形成了逻辑严密、系统完备的理论体系。

(I) Adhering to the Governance Philosophy of “Benefiting the People”

（一）坚持以“造福人民”为治理理念

The governance philosophy of comprehensive cyberspace governance answers the questions of “for whom” and “relying on whom.” Xi Jinping’s answer is: “Promote informatization to better benefit society and the people.”[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.26 Therefore, it is necessary to coordinate multiple dimensions such as development and security, freedom and order. This is a concrete manifestation of the people-centered development thought in the field of cyberspace and informatization.

网络综合治理理念回答的是“为了谁”“依靠谁”的问题，习近平给出的答案是：“推动信息化更好造福社会、造福人民”[9]26。因此，要统筹发展与安全、自由与秩序等多维度，这是“以人民为中心”的发展思想在网信领域的具体彰显。

First, adhere to the fundamental purpose of being “people-centered.” Xi Jinping’s important discourse on comprehensive cyberspace governance emphasizes that the cause of cyberspace and informatization relies on the people and benefits the people, highlighting the theoretical character of being “people-centered.” On the one hand, the process of comprehensive cyberspace governance must rely on the people. In this regard, Xi Jinping points out, “We must follow the mass line online”[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.12, making the internet a new channel for “responding to public concerns and accepting supervision by the people.”[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.24 In 2023 alone, national online reporting departments at all levels received and handled 206 million pieces of tip-offs from netizens. Among them, the Reporting Center of the Cyberspace Administration of China received and handled 6.693 million reports, local cyberspace administration reporting departments received and handled 8.918 million reports, and major national website platforms received and handled 190 million reports, truly playing the role of public supervision and effectively improving the order of cyberspace.[14] On the other hand, the fruits of comprehensive cyberspace governance are enjoyed by the people. The Party and the state have repeatedly emphasized the need to “give hundreds of millions of people a greater sense of gain in sharing the fruits of internet development”[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.44, making the people the biggest beneficiaries of comprehensive cyberspace governance. In recent years, the Cyberspace Administration of China has adhered to the goal of a clear and bright cyberspace, taken the fundamental interests of the people as the starting point, intensively rectified prominent online problems and disorders, comprehensively covered key areas and critical links online, promoted the continuous improvement of the online ecological environment, and practiced the governance philosophy of “benefiting the people” with concrete actions.

第一，坚持“以人民为中心”的根本宗旨。习近平关于网络综合治理的重要论述强调网信事业依靠人民、惠及人民，凸显了“以人民为中心”的理论品格。一方面，网络综合治理过程要依靠人民。对此，习近平指出，“要走好网上群众路线”[9]12，让互联网成为“回应群众关切、接受人民监督”[9]24的新渠道。仅2023年，全国各级网络举报部门受理处置网民举报线索2.06亿件。其中，中央网信办举报中心受理举报669.3万件，各地网信举报工作部门受理举报891.8万件，全国主要网站平台受理举报1.9亿件，真正发挥了群众监督作用，有效改善了网络空间秩序。[14]另一方面，网络综合治理成果由人民享有。党和国家多次强调，要“让亿万人民在共享互联网发展成果上有更多获得感”[9]44，使人民群众真正成为网络综合治理的最大受益者。近年来，中央网信办坚持以清朗网络空间为目标，以人民根本利益为出发点，集中整治网上突出问题乱象，全面覆盖网上重点领域关键环节，推动网络生态持续向好，以实际行动践行“造福人民”的治理理念。

Second, adhere to coordinating development and security. From a dialectical perspective, Xi Jinping proposes the coordinating thought that “security and development should be advanced simultaneously”[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.90, forming an overall pattern of “ensuring development with security and promoting security with development.”[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.90 On the one hand, cybersecurity is the bottom line of comprehensive cyberspace governance. Xi Jinping attaches great importance to cybersecurity issues, putting forward important theses such as “cybersecurity and informatization concern the Party’s long-term governance”[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.43 and “without cybersecurity there is no national security”[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.58, elevating it to the strategic height of national security and overall security. In this regard, it is necessary to “uphold a correct cybersecurity outlook, build a solid national cybersecurity barrier”[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.44, comprehensively advance cybersecurity and informatization construction, and improve the national cyberspace security guarantee system. On the other hand, internet development is the driving force of comprehensive cyberspace governance. “In today’s world, informatization is developing rapidly; if you do not advance, you fall behind, and if you advance slowly, you also fall behind.”[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.131 Frontier technologies such as artificial intelligence and blockchain have been widely embedded in the field of cybersecurity. Without mastering these frontier technologies, one will fall into a

第二，坚持统筹发展与安全。习近平从辩证的角度，提出“安全和发展要同步推进”[9]90的协调思想，形成“以安全保发展、以发展促安全”[9]90的整体格局。一方面，网络安全是网络综合治理的底线。习近平高度重视网络安全问题，提出“网络安全和信息化事关党的长期执政”[9]43，“没有网络安全就没有国家安全”[9]58等重要论断，将其上升到国家安全、总体安全的战略高度。对此，要“坚持正确网络安全观，筑牢国家网络安全屏障”[9]44，整体推进网络安全和信息化建设，完善国家网络空间安全保障体系。另一方面，网络发展是网络综合治理的动力。“当今世界，信息化发展很快，不进则退，慢进亦退。”[9]131人工智能、区块链等前沿技术已广泛嵌入网络安全领域，不掌握这些前沿技术，就会陷入被动局面。当下我国互联网事业蓬勃发展，但“国内互联网发展瓶颈仍然较为突出”[9]33，“核心技术受制于人的局面尚未改变”[9]42等问题依旧存在。因此，要坚持“以人民为中心”的发展思想，统筹高质量发展和高水平安全。

Third, adhere to balancing freedom and order. Xi Jinping points out: "Cyberspace, like real society, must both advocate freedom and abide by order."[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.66 On the one hand, freedom is the purpose of order. Comprehensive cyberspace governance does not mean "blockading and suppressing" in cyberspace, but rather "fully respecting the right of netizens to exchange ideas and express their will"[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.66, understanding the thoughts and aspirations of the people, and safeguarding the legitimate rights and interests of the masses. Advocating freedom of speech online, to a certain extent, expands people's channels for political participation, broadly builds social consensus, and enriches forms of democratic supervision. The Party and the state should respect the rights and freedoms of the people to reflect problems and express demands through the internet, embodying a rule-of-law order of freedom in cyberspace.[15] On the other hand, order is the guarantee of freedom. Good order is the foundation for stable social development; delineating and protecting the boundaries and rights of online freedom of speech is an inherent requirement for advancing comprehensive cyberspace governance. The anonymity and immediacy of cyberspace give netizens an unprecedented sense of freedom, but this freedom must be based on maintaining the cyber ecology and ensuring national security and social stability. Therefore, it is necessary to build a complete legal regulatory system for online freedom of speech, using legislative means to reasonably regulate and guide netizens' expression, ensuring that netizens' freedom is fully protected within the track of the rule of law.

第三，坚持兼顾自由与秩序。习近平指出：“网络空间与现实社会一样，既要提倡自由，也要遵守秩序。”[9]66一方面，自由是秩序的目的。网络综合治理不是在网络空间“围追堵截”，而是要“充分尊重网民交流思想、表达意愿的权利”[9]66，了解人民群众所思所想，维护人民群众合法权益。倡导网络言论自由，一定程度上拓展人们的政治参与渠道，广泛凝聚社会共识，丰富民主监督形式。党和国家应尊重人民群众通过互联网反映问题、表达诉求的权利和自由，在网络空间中体现自由的法治秩序。[15]另一方面，秩序是自由的保障。良好的秩序是社会稳定发展的基础，划分并保护网络言论自由的边界和权利是推进网络综合治理的内在要求。网络空间的隐匿性、即时性等特点让网民感受到前所未有的自由度，但这种自由要以维护网络生态、保障国家安全和社会稳定为基础。因此，要构建完善的网络言论自由法律规制体系，通过立法手段合理规范并引导网民表达，确保在法治轨道上充分保障网民自由。

(2) Adhere to "comprehensive coordination" as the governance structure

（二）坚持以“综合协同”为治理结构

The comprehensive cyberspace governance structure addresses two major issues: "who are the governance subjects" and "what is the relationship between governance subjects." At the present stage, China has basically formed a comprehensive cyberspace governance structure of "multi-subject participation including Party committee leadership, government management, enterprise fulfillment of responsibilities, social supervision, and netizen self-discipline"[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.56-57.

网络综合治理结构解决的是“治理主体是谁”“治理主体之间是什么关系”两大问题。现阶段，我国已基本形成了“党委领导、政府管理、企业履责、社会监督、网民自律等多主体参与”[9]56-57的网络综合治理结构。

First, adhere to the core principle of “unified and centralized leadership of the Party committee.” For a long time, Xi Jinping has

第一，坚持“党委集中统一领导”的核心原则。长期以来，习近平高度重视网络综合治理领导体系建设，强调“必须旗帜鲜明、毫不动摇坚持党管互联网，加强党中央对网信工作的集中统一领导”[9]10。加强党的领导是管好用好发展好互联网，有效提高网络综合治理能力的根本保障。落实“党管互联网”的原则，要将党的领导贯穿治理全过程，发挥党的顶层设计、政治引领、组织建设等功能；要压实责任，严格落实网络综合治理工作责任制，推动网络综合治理体系建设不断趋深向实。中央网络安全和信息化领导小组负责统筹协调政治、经济、文化等各领域信息化和网络安全重大问题，作出一系列重大决策部署。此后，各级地方党委相继组建工作小组，全面贯彻落实党中央的决策部署。2018年3月，根据中共中央印发的《深化党和国家机构改革方案》，将“中央网络安全和信息化领导小组”改为“中央网络安全和信息化委员会”，更好地发挥其“决策和统筹协调作用，在关键问题、复杂问题、难点问题上定调、拍板、督促”[9]10。

Second, adhere to the comprehensive approach of "multi-subject collaborative governance." Under the unified leadership of the Party committee, "online platforms, social organizations, and the vast number of netizens should play an active role, jointly promoting civilized operation of the internet, civilized use of the internet, and civilized access to the internet, shaping and purifying cyberspace with the new ethos of the times, and jointly building a beautiful spiritual home online."[4]4 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 319.319 First, the government is the management subject of comprehensive cyberspace governance. The government must "strengthen internet thinking, be adept at leveraging the advantages of the internet,"[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.24 implement the decisions and deployments of the Party Central Committee, focus on enhancing regulatory, service, and guarantee capabilities, and better play its leading role; it must achieve a transformation from "single management" to "overall coordination," emphasize unity, collaboration, and complementary advantages, and promote collaborative governance among multiple subjects. Second, enterprises are the responsible subjects of comprehensive cyberspace governance. Xi Jinping emphasizes: "The primary responsibility of internet enterprises must be enforced; the internet must never be allowed to become a platform for spreading harmful information, creating rumors, and causing trouble."[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.57 Internet enterprises have a wide range of business operations, covering multiple fields such as online information, social media, and technological innovation, penetrating all aspects of people's daily lives—clothing, food, housing, and transportation. Leveraging their advantages in technology and talent, they must strengthen the governance of the online information ecosystem, enhance content review, respond to sudden public opinion, ensure information security, and effectively maintain order in cyberspace. Third, society is the supervisory subject of comprehensive cyberspace governance. By undertaking some of the government's public service functions, social organizations can, to a certain extent, compensate for the potential limitations of the government-led governance model in comprehensive cyberspace governance. Therefore, relevant social organizations should be encouraged to establish and improve industry self-discipline mechanisms, promote the formation of an industry credit evaluation system, integrate forces from research institutes and civil organizations, and leverage their functions in technological research and development, organizational supervision, and publicity and education. Fourth, netizens are the self-disciplining subjects of comprehensive cyberspace governance. Comprehensive cyberspace governance is essentially work carried out among the vast number of netizens. It must follow the general laws of social governance, encourage netizens to regulate their online words and deeds, improve their online media literacy, enhance their sense of online moral responsibility, and consciously become participants in comprehensive cyberspace governance.

第二，坚持“多元主体协同治理”的综合路径。在党委集中统一领导下，“网络平台、社会组织、广大网民等要发挥积极作用，共同推进文明办网、文明用网、文明上网，以时代新风塑造和净化网络空间，共建网上美好精神家园”[4]319。其一，政府是网络综合治理的管理主体。政府要“强化互联网思维，善于利用互联网优势”[9]24，贯彻落实党中央的决策部署，着力提升监管、服务和保障能力，更好地发挥主导作用；要实现从“单一管理”到“统筹协调”的转变，注重团结协作与优势互补，促进多元主体之间的协同治理。其二，企业是网络综合治理的责任主体。习近平强调：“要压实互联网企业的主体责任，决不能让互联网成为传播有害信息、造谣生事的平台。”[9]57互联网企业业务范围广泛，涵盖网络信息、社交媒体、科技创新等多领域，深入人们日常生活的衣、食、住、行各方面，凭借其技术、人才等方面的优势，要加强网络信息生态治理，强化内容审核、应对突发舆情、确保信息安全，有效维护网络空间秩序。其三，社会是网络综合治理的监督主体。社会组织通过承担政府部分公共服务职能，一定程度上弥补了在网络综合治理中政府主导型治理模式下潜在的局限性。因此，应鼓励相关社会组织建立健全行业自律机制，推动形成行业信用评价体系，整合科研院所、民间组织等多方力量，发挥其在技术研发、组织监督及宣传教育等方面的功用。其四，网民是网络综合治理的自律主体。网络综合治理本质上是开展广大网民的工作，要遵循社会治理的一般性规律，鼓励广大网民要规范网络言行举止、提高网络媒介素养、增强网络道德责任感，自觉成为网络综合治理的参与者。

(III) Adhere to "Clear and Clean Cyberspace" as the Content of Governance

（三）坚持以“清朗空间”为治理内容

The content of comprehensive cyberspace governance answers the core question of "what to govern," aiming to create a clear and clean cyberspace, where data security is the bottom line, content construction is the foundation, and public opinion governance is the focus.

网络综合治理内容回答了“治理什么”的核心问题，旨在营造清朗的网络空间，其中数据安全是底线、内容建设是根本、舆论治理是重点。

First, adhere to "data security" as the bottom line. "Data security" concerns personal privacy, corporate secrets, and national interests; handling data security well is the bottom line of comprehensive cyberspace governance. "China possesses massive data resources, enormous application demand, and deep market potential."[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.121 How to make good use of big data and ensure its security is a key issue that comprehensive cyberspace governance urgently needs to address. First, ensure national data security. Security risks such as the disorderly proliferation and illegal leakage of data are becoming increasingly prominent, posing severe challenges to cybersecurity and even national security. "Data security issues are quite prominent and must not be taken lightly."[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.100-101 Big data management must be strengthened in accordance with the law to effectively guarantee national data security. The *Data Security Law* focuses on prominent issues in the field of data security, emphasizes the implementation of a data classification and grading management strategy, and establishes a complete set of basic institutional frameworks including risk assessment, monitoring and early warning, and emergency response. Second, promote data development and utilization. In particular, the open sharing of public data should be encouraged to improve the efficiency of data resource utilization, release the value of data elements, build a nationally integrated national big data center, promote the deep integration of technology, business, and data, achieve cross-level, cross-regional, cross-system, cross-departmental, and cross-business collaborative cooperation, and construct an overall pattern of "three integrations and five crossovers."[n]

第一，坚持以“数据安全”为底线。“数据安全”关乎个人隐私、企业机密、国家利益，处理好数据安全是网络综合治理的底线。“我国拥有海量数据资源、巨大应用需求、深厚市场潜力”[9]121，如何运用好大数据，确保大数据安全，是网络综合治理亟待解决的关键问题。其一，确保国家数据安全。数据的无序扩散、非法泄露等安全风险日益凸显，对网络安全乃至国家安全构成严峻挑战。“数据安全问题比较突出，绝不能掉以轻心”[9]100-101，要依法加强大数据管理，切实保障国家数据安全。《数据安全法》重点聚焦数据安全领域的突出问题，强调要实施数据分类分级管理策略，构建了包括风险评估、监测预警以及应急处置等在内的一整套基本制度框架。其二，促进数据开发利用。尤其是要鼓励公共数据的开放共享，提高数据资源的利用效率，释放数据要素价值，建设全国一体化的国家大数据中心，推进技术、业务、数据深度融合，实现跨层级、地域、系统、部门、业务的协同合作，构建“三融五跨”整体格局。

Second, adhere to "content construction" as the foundation. Xi Jinping emphasizes: "Strengthen the construction of online content, enhance positive online publicity, and cultivate a healthy, positive, and uplifting online culture."[16]16 Xi Jinping, *The Governance of China*, Vol. 2, Beijing: Foreign Languages Press, 2017, p. 336. With the iterative updates of digital technology, the production, dissemination, and consumption of online content have changed. Diverse and rich online content meets the spiritual and cultural needs of netizens, but information such as falsehoods, fraud, and attacks also brings significant challenges to online content regulation. On the one hand, online content regulation must adhere to the principle of "the Party managing the internet," construct a scientific content review mechanism, curb the spread of harmful information, gather multiple subjects to collaboratively advance content governance, and create a good online ecosystem. The *Provisions on the Governance of the Online Information Content Ecosystem* clarify the relevant subjects and their responsibilities in the governance of the online information content ecosystem, list illegal information and harmful information, and formulate a "negative list."[17]17 The *Provisions on the Governance of the Online Information Content Ecosystem* (《网络信息内容生态治理规定》) were promulgated by the Cyberspace Administration of China and came into effect on March 1, 2020. On the other hand, the key to content construction in cyberspace is to "cultivate internal strength" and "win development advantages with content advantages."[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.69 Relevant mainstream media must be guided by the core socialist values, occupy the main positions of online culture, and sing the main theme of online culture. Online enterprises and platforms, under the guidance of mainstream culture, should create high-quality online cultural products, innovate the forms of online cultural supply, expand the coverage and influence of high-quality content, and improve the quality of spiritual and cultural life for the vast number of netizens.

第二，坚持以“内容建设”为根本。习近平强调：“加强网络内容建设，做强网上正面宣传，培育积极健康、向上向善的网络文化。”[16]随着数字技术的迭代更新，网络内容的生产、传播及消费等环节发生变化，多元丰富的网络内容满足了网民的精神文化需求，但虚假、诈骗、攻击等信息也给网络内容监管带来巨大挑战。一方面，网络内容监管要坚持“党管互联网”的原则，构建科学的内容审查机制，遏制不良信息传播，汇聚多元主体协同推进内容治理，营造良好的网络生态。《网络信息内容生态治理规定》中，就明确了网络信息内容生态治理的相关主体及主体责任，罗列了违法信息、不良信息，制定了“负面清单”[17]。另一方面，网络空间内容建设，关键是要“修炼内功”，要“以内容优势赢得发展优势”[9]69。相关主流媒体要以社会主义核心价值观为指引，占领网络文化主阵地，唱响网络文化主旋律。网络企业与平台要在主流文化的引领下，打造高质量的网络文化产品，创新网络文化供给形式，拓展优质内容的覆盖面和影响力，提升广大网民的精神文化生活质量。

Third, adhere to "public opinion guidance" as the focus. The internet has become a distribution center for information dissemination, a main front for public opinion propaganda, and a main battlefield for ideological struggle. The root causes of many problems in cyberspace often lie in improper control of negative public opinion and insufficient intensity of positive publicity. Therefore, "the importance of public opinion guidance must be deeply understood,"[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.49 and "the integrated management of news propaganda and online public opinion must be promoted."[1]1 Xi Jinping, "Hold High the Great Banner of Socialism with Chinese Characteristics and Strive in Unity to Build a Modern Socialist Country in All Respects — Report to the 20th National Congress of the Communist Party of China," *People's Daily*, October 26, 2022. First, adhere to the correct orientation of public opinion. "If the orientation of public opinion is correct, it can unite people's hearts, gather strength, and promote the development of the cause."[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.74 Relevant departments and mainstream media must assume primary responsibility, achieve full coverage of online public opinion governance, improve the working mechanism of online public opinion governance, actively guide and scientifically implement policies for various public opinion subjects and communication platforms, and jointly build a good online public opinion ecosystem; the ability to respond to sudden online public opinion incidents must be enhanced, and a system for detection, early warning, guidance, and regulation of online public opinion governance must be established and improved to compress the space for the spread of harmful public opinion. Second, win the online public opinion struggle. "The more some people try to suppress the voice of positive public opinion, the more we must speak out."[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.49 On the basis of a profound grasp of the laws of internet information dissemination, we must as soon as possible take control of the internet, the main battlefield of the public opinion struggle, "carry out the public opinion struggle with reason, advantage, and restraint,"[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.50 increase the intensity of positive publicity, and resolutely safeguard online political security and ideological security.

第三，坚持以“舆论引导”为重点。互联网已成为信息传播的集散地、舆论宣传的主阵地和意识形态斗争的主战场。网络空间的诸多问题，其根源往往在于负面舆论的管控不当以及正面宣传的力度不够。因此，“要深刻认识舆论引导的重要性”[9]49，“推进新闻宣传和网络舆论一体化管理”[1]。其一，坚持正确舆论导向。“舆论导向正确，就能凝聚人心、汇聚力量，推动事业发展。”[9]74相关部门和主流媒体要承担主体责任，实现网络舆论治理全覆盖，完善网络舆论治理工作机制，对各类舆论主体、传播平台进行积极引导、科学施策，共建良好的网络舆论生态；要提高网络舆论突发事件的应对能力，建立健全网络舆论治理的检测预警、引导调控体系，压缩不良舆论的传播空间。其二，打赢网上舆论斗争。“越是有人要压制正面舆论的声音，我们越是要发声。”[9]49在深刻把握互联网信息传播规律的基础上，要尽快掌握互联网这个舆论斗争的主战场，“有理有利有节开展舆论斗争”[9]50，加大正面宣传力度，坚决维护网上政治安全和意识形态安全。

(IV) Adhere to "Multiple Policy Measures" as the Means of Governance

（四）坚持以“多元施策”为治理手段

With the innovative iteration of digital technology, threats in cyberspace also exhibit dynamic and latent characteristics. Therefore, it is necessary to adhere to the combination of legal construction, technology-based governance, and moral construction to address the increasingly complex risks and challenges in cyberspace.

随着数字技术的创新迭代，网络空间威胁也呈现动态性、潜在性等特征。因此，要坚持法治建设、技术治网与道德建设相结合，应对网络空间日益复杂的风险挑战。

First, strengthen the construction of the rule of law in cyberspace. Xi Jinping points out, “Cyberspace is not a ‘place beyond the reach of law’” [18]18 , and the law should play a role in regulating group behavior, adjusting interest relations, and maintaining good order in cyberspace. First, accelerate the legislative process for the internet. As a new domain for governing the country, the internet requires “urgently formulating legislative plans, improving laws and regulations on internet information content management, protection of critical information infrastructure, etc.” [19]19 The term “new-type infrastructure” (新型基础设施) refers to digital infrastructure such as 5G networks, data centers, and artificial intelligence platforms, as distinct from traditional physical infrastructure like roads and bridges.198-199, ensuring that the internet always operates healthily on the track of the rule of law. Entering the New Era, China has successively introduced a series of internet-related laws and regulations, such as the Cybersecurity Law and the Personal Information Protection Law, forming a comprehensive legal and regulatory system covering multiple fields including cybersecurity and data privacy, comprehensively advancing the construction of the rule of law in cyberspace. Second, clarify the responsible subjects. “Cyberspace is virtual, but the subjects using cyberspace are real; everyone should abide by the law and clarify the rights and obligations of all parties.” [9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.155 This important discourse stipulates the universality of law-abiding subjects in comprehensive cyberspace governance. Among them, government departments must “govern the internet according to law,” increasing law enforcement and supervision efforts in key areas; internet enterprises must “operate the internet according to law,” adhering to the unity of economic and social benefits; and the vast number of netizens must “access the internet according to law,” raising awareness of respecting and abiding by the law, and consciously maintaining internet order.

第一，加强网络空间法治建设。习近平指出，“网络空间不是‘法外之地’”[18]，要发挥法律在网络空间规范群体行为、调节利益关系、维护良好秩序的作用。其一，加快网络立法进程。互联网作为治国理政的新领域，要“抓紧制定立法规划，完善互联网信息内容管理、关键信息基础设施保护等法律法规”[19]198-199，确保互联网始终在法治轨道上健康运行。进入新时代，我国相继出台《网络安全法》《个人信息保护法》等一系列互联网领域法律法规，形成了覆盖网络安全、数据隐私等多领域全方位的网络法律法规体系，全面推进了网络空间法治建设。其二，落实相关责任主体。“网络空间是虚拟的，但运用网络空间的主体是现实的，大家都应该遵守法律，明确各方权利义务。”[9]155这一重要论述规定了网络综合治理中守法主体的广泛性。其中，政府部门要“依法管网”，加大在重点领域的执法力度、监管力度；互联网企业要“依法办网”，坚持经济效益和社会效益的统一；广大网民要“依法上网”，提高尊法守法意识，自觉维护网络秩序。

Second, comprehensively enhance the capacity for technology-based governance. The iterative updating of technology imposes new requirements on internet governance, requiring “comprehensively enhancing the capacity and level of technology-based governance” [9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.84. First, strengthen the independent research and development of core technologies. To advance comprehensive cyberspace governance, it is necessary to achieve independent control over core technologies, changing the situation where core technologies are controlled by others; to clarify the relationship between the internet’s technical characteristics of “decentralization” and “deregulation” and the governance demands of cyberspace for “centralization” and “regulation,” tapping into the governance potential embedded in technology; to pay attention to frontier technologies such as blockchain and generative artificial intelligence, enhancing the ability to master the development of internet technology; and to build a high-level technical talent team, allowing various talents to display their skills in core technology research and development and technical governance. Second, forge a safety bottom line for the application of technology. In response to issues such as technical obstacles and technical barriers in the governance process, it is necessary to adhere to both encouraging technological innovation and promoting technology for good, continuously conducting research and reserves on the development of frontier internet technologies; to improve the technical support system for comprehensive cyberspace governance, strengthening security assessments of new internet technologies and applications, and forging a safety bottom line for the application of technology. Only by adhering to the governance principle of “using technology to counter technology, using technology to manage technology” [9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.95 and enhancing the capacity and level of technical governance can various security risks be effectively prevented and resolved.

第二，全面提升技术治网能力。技术的更新迭代对互联网治理提出新要求，要“全面提升技术治网能力和水平”[9]84。其一，强化核心技术的自主研发。推进网络综合治理，要实现核心技术自主可控，改变核心技术受制于人的局面；要理顺互联网“去中心”“去监管”的技术特征与网络空间“有中心”“有监管”的治理需求之间的关系，挖掘技术蕴含的治理潜能；要关注区块链、生成式人工智能等前沿技术，提升对互联网技术发展的驾驭能力；要打造高水平技术人才队伍，让各类人才在核心技术研发、技术治理等方面施展才干。其二，铸牢技术运用的安全底线。针对治理过程中存在的技术障碍、技术壁垒等问题，要坚持鼓励技术创新与推动技术向善并重，持续开展对互联网前沿技术发展的研究与储备；要完善网络综合治理的技术支撑体系，强化互联网新技术新应用安全评估，铸牢技术运用的安全底线。只有坚持“以技术对技术，以技术管技术”[9]95的治理原则，提升技术治理能力和水平，才能切实防范化解各类安全风险。

Third, earnestly strengthen the construction of internet morality. Illegal and criminal acts in cyberspace require severe punishment through legal means, while immoral online behavior depends on moral education in cyberspace. Xi Jinping emphasizes: “We must strengthen internet ethics and internet civilization construction, give play to the guiding role of moral education, and nourish cyberspace and repair the internet ecosystem with the excellent achievements of human civilization.” [9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.155 Therefore, it is necessary to build a complete system of norms for internet moral behavior, thereby laying an ethical foundation and moral norms for the soft governance of cyberspace. The Cyberspace Administration of China has taken the lead in proposing the “Seven Bottom Lines” for netizens to observe, and has introduced supporting regulations such as the “Ten Articles on WeChat,” the “Ten Articles on Accounts,” and the “Ten Articles on Interviews,” effectively strengthening moral norms in cyberspace; it has carried out public-interest and mass activities on internet morality, such as special actions like “Qinglang” (Clear and Bright) and “Jingwang” (Clean Cyberspace), series of activities like “Cybersecurity Awareness Week,” and themed activities like “Internet Chinese Festivals,” concentrating on rectifying various illegal and harmful information online. In addition, relevant departments have also promoted the application of “Internet+” in areas such as Party building, focusing on cybersecurity and internet media literacy education, enhancing netizens’ abilities to produce, disseminate, and discern online information, and cultivating the moral self-discipline spirit of the vast number of netizens.

第三，切实加强网络道德建设。网络空间违法犯罪行为需要依靠法律手段严惩，网上不道德行为则有赖于网络道德教化。习近平强调：“要加强网络伦理、网络文明建设，发挥道德教化引导作用，用人类文明优秀成果滋养网络空间、修复网络生态。”[9]155因此，要构建完善的网络道德行为规范体系，从而为网络空间的软治理奠定伦理基础与道德规范。国家网信办牵头提出网友遵守的“七条底线”，配套出台“微信十条”“账号十条”“约谈十条”等相关规定，切实强化网络空间道德规范；开展网络道德公益性、群众性活动，如“清朗”“净网”等专项行动、“网络安全宣传周”等系列活动和“网络中国节”等主题活动，集中整治网上各类违法和不良信息。此外，相关部门还推动“互联网+”在党建工作等领域的运用，重点聚焦网络安全和网络媒介素养教育，增强网民网络信息生产、传播与辨别的能力，培育广大网民的道德自律精神。

III. Practical Requirements of Xi Jinping’s Important Discourses on Comprehensive Cyberspace Governance

三、习近平关于网络综合治理重要论述的实践要求

Comprehensive cyberspace governance is a long-term task and a systematic project, requiring scientific grasp and effective application of corresponding governance strategies at the practical level. Therefore, it is necessary to improve top-level design, perfect supporting institutional mechanisms, enhance the effectiveness of grassroots governance, and strengthen the synergy and integration of resources, promoting continuous new achievements in comprehensive cyberspace governance.

网络综合治理是一项长期性任务和系统性工程，需要在实践层面科学把握和有效运用相应的治理策略。因此，要完善顶层设计，健全配套体制机制，提升基层治理效能和强化资源协同融通，推进网络综合治理不断取得新成效。

(1) Improve Top-Level Design to Promote the Efficient Operation of the Comprehensive Cyberspace Governance System

（一）完善顶层设计，推动网络综合治理体系的高效运行

Comprehensive cyberspace governance “affects the whole body when one part is moved,” closely linked to national security, social stability, and the interests of the people. Therefore, it is necessary to strengthen top-level design, unify planning and layout, and promote the efficient operation of the comprehensive cyberspace governance system.

网络综合治理“牵一发而动全身”，与国家安全、社会稳定、人民利益有着紧密联系。因此，必须加强顶层设计，统一规划布局，推动网络综合治理体系的高效运行。

First, adhere to the general tone of seeking progress while maintaining stability, and make overall arrangements and strategic plans. Comprehensive cyberspace governance is “a major strategic issue concerning national security and national development, and concerning the work and life of the broad masses of the people” [9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.33, requiring phased and step-by-step steady advancement following the inherent laws of comprehensive cyberspace governance. In this regard, the Party and the state must recognize the long-term and arduous nature of comprehensive cyberspace governance, strengthen medium- and long-term strategic planning, accelerate the introduction of guiding documents, and clarify the key tasks and basic projects at different stages; strengthen policy research and analysis, promptly introduce guiding policy measures to optimize the policy environment for comprehensive cyberspace governance; possess forward-looking thinking, scientifically anticipate the opportunities and challenges that may be faced in the governance process, and preemptively formulate response strategies.

第一，坚持稳中求进的总基调，做好整体部署和战略规划。网络综合治理是一项“事关国家安全和国家发展、事关广大人民群众工作生活的重大战略问题”[9]33，需要遵循网络综合治理的内在规律分阶段、分步骤稳步推进。对此，党和国家要认识到网络综合治理的长期性、艰巨性，加强中长期战略谋划，加快出台指导性文件，明确不同阶段的重点任务和基础工程；要强化政策研究与分析，及时推出引导性政策措施，以优化网络综合治理的政策环境；要具备前瞻性思维，科学预见治理过程中可能面临的机遇和挑战，并预先制定应对策略。

Second, focus on key areas and formulate differentiated development strategies. For comprehensive cyberspace governance “to achieve tangible results, the key is to find the right path, build a good institutional mechanism, grasp key points, solve difficulties, and identify focal points” [11]396. The characteristics and problems of different fields vary, requiring the formulation of refined and differentiated governance strategies. This demands that in top-level design, we must deeply analyze the actual situation of each field, accurately grasp the crux of the problems, and thus propose targeted and operable governance measures. In this regard, it is necessary to formulate governance plans and policies that suit the actual conditions of each field, forming governance strategies that are both independent and mutually coordinated in areas such as cybersecurity maintenance, internet content construction, and internet public opinion guidance. For example, to resolutely curb the high incidence of telecom and online fraud crimes, relevant departments have concentrated their efforts on deploying special actions such as the “Great Wall” and “Cutting Off the Flow.”

第二，重点把握关键领域，制定差异化的发展策略。网络综合治理“要取得实实在在的效果，关键是要找准路子、构建好的体制机制，抓重点、解难点，把握着力点”[11]396。不同领域的特点和问题各不相同，需要制定精细化、差异化的治理策略。这要求在顶层设计时，要深入分析各领域的实际情况，准确把握问题的症结所在，从而提出具有针对性和可操作性的治理措施。对此，要制定符合各领域实际的治理方案和政策，针对网络安全维护、网络内容建设、网络舆论引导等方面形成既相互独立又整体配合的治理策略。例如，为坚决遏制电信网络诈骗犯罪高发态势，相关部门集中力量重点部署开展“长城”“断流”等专项行动。

(2) Improve Supporting Institutional Mechanisms to Avoid Potential Risks in the Process of Comprehensive Cyberspace Governance

（二）健全配套体制机制，规避网络综合治理过程的潜在风险

“Cyberspace affairs involve many fields; we must strengthen overall coordination, implement comprehensive governance, and form a strong work synergy.” [9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.45 In this regard, it is necessary to accelerate the establishment of risk assessment and early warning mechanisms, improve inter-departmental coordination mechanisms, and perfect long-term mechanisms for internet ecological governance, continuously eliminating obstructive factors in the governance process.

“网信工作涉及众多领域，要加强统筹协调、实施综合治理，形成强大工作合力。”[9]45对此，要加快建立风险评估和预警机制、完善部门间统筹协调机制和健全网络生态治理长效机制，不断消除治理过程中的阻滞因素。

First, establish risk assessment and early warning mechanisms. Xi Jinping points out: “To maintain cybersecurity, we must first know where the risks are, what kind of risks they are, and when the risks will occur.” [9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.93 In this regard, it is necessary to discern the internal logic and dynamic laws of online information dissemination, establish a matching risk assessment and early warning mechanism covering key areas, promptly capture and resolve potential risks in cyberspace, and seize the initiative in governance. For key areas such as data privacy, algorithm application, and product development, relevant departments must strengthen special and key supervision, regulate the behavioral practices of internet stakeholders such as network operators, digital platforms, and technology organizations, and avoid adverse phenomena that harm national security and damage the interests of the masses.

第一，建立风险评估和预警机制。习近平指出：“维护网络安全，首先要知道风险在哪里，是什么样的风险，什么时候发生风险。”[9]93对此，要洞察网络信息传播的内在逻辑与动态规律，建立与之相适配的覆盖关键领域的风险评估和预警机制，及时捕捉并化解网络空间的潜在风险，掌握治理的主动权。针对数据隐私、算法运用、产品开发等重点领域，相关部门须加强专项监管和重点监管，规范网络运营机构、数字平台与技术组织等网络利益相关方的行为实践，避免出现危害国家安全、损害群众利益的不良现象。

Second, improve the mechanism for overall planning and coordination among departments. At the present stage, comprehensive cyberspace governance suffers from phenomena such as departmental barriers, blurred powers and responsibilities, and conflicts of interest. Interdepartmental cooperation exhibits characteristics of temporariness, partiality, and superficiality, and a normalized mechanism for overall planning and coordination has not yet been formed, which to a certain extent weakens the overall effectiveness of governance. In response to this, it is necessary to clarify the core responsibilities and authority boundaries of each department, refine the list of responsibilities and the list of powers, and realize “a shift from one-way management to two-way interaction, from offline to the integration of online and offline, and from simple government supervision to greater emphasis on social collaborative governance.”[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.21 The government should promote the integration and sharing of resources among multiple departments, including propaganda, public security, cyberspace affairs, and culture, and build a unified and efficient coordination mechanism; it should follow the principles of territorial management, graded responsibility, and authorized accountability, guide localities to explore governance measures that suit the characteristics of their territories, and “blaze a new path of governance featuring joint management by all parties and benign interaction.”[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.5

第二，完善部门间统筹协调机制。现阶段，网络综合治理存在部门壁垒、权责模糊及利益冲突等现象，部门间合作呈现出临时性、局部性和浅层性等特征，还未形成常态化统筹协调机制，一定程度上削弱了治理的整体效能。对此，要明确各部门的核心职责与权限边界，细化责任清单与权力清单，实现“从单向管理转向双向互动，从线下转向线上线下融合，从单纯的政府监管向更加注重社会协同治理转变”[9]21。政府要推动宣传、公安、网信、文化等多部门间的资源整合共享，构建统一高效的协调机制；要遵循属地管理、分级负责、受权专责的原则，引导各地探索符合属地特点的治理举措，“走出一条齐抓共管、良性互动的治理新路”[9]5。

Third, improve the long-term mechanism for cyberspace ecosystem governance. Judging from the current development trend of information technology, the shaping effect of cyberspace on people’s production and daily life will continue to intensify, and cyberspace governance will also face more complex risks and challenges. Therefore, comprehensive cyberspace governance must break free from the limitations of short-term governance and shift to a strategic perspective of long-term planning and steady implementation. This requires that policy formation, law-making, mechanism improvement, and activities such as law enforcement and judicial administration be forward-looking, and that scientific predictions be made about the future landscape of cyberspace social development based on trends in technological development and laws of social change. At the same time, the methods of comprehensive cyberspace governance must be sustainable, unifying the promotion of development with the safeguarding of security, and the management of the present with the benefit of the long term, so as to continuously optimize the cyberspace ecosystem.

第三，健全网络生态治理长效机制。从目前信息技术的发展态势来看，网络空间对人们生产、生活的塑造作用将持续加剧，网络治理也将面临更为复杂的风险挑战。因此，网络综合治理必须跳出短期治理的局限，转向一种长期规划、稳步实施的战略视角。这就要求政策形成、法律制定和机制完善以及执法、司法等活动要具有前瞻性，要基于科技发展趋势、社会变迁规律等，对网络社会发展的未来图景进行科学预判。同时网络综合治理的方式要有持续性，将促发展与保安全、管当下与利长远相统一，持续优化网络生态环境。

(III) Enhance the quality and effectiveness of grassroots governance, fully leveraging the popular force of comprehensive cyberspace governance

（三）提升基层治理质效，充分发挥网络综合治理的群众力量

Grassroots governance is the cornerstone of national governance and a foundational project for deepening and solidifying comprehensive cyberspace governance. In this regard, it is necessary to improve the cyberspace governance capabilities of grassroots cadres, strengthen the participation of the people in cyberspace governance, and harness the popular force of comprehensive cyberspace governance.

基层治理是国家治理的基石，是推动网络综合治理走深走实的基础工程。对此，要提高基层干部的网络治理能力，加强人民群众的网络治理参与，发挥网络综合治理的群众力量。

First, improve the cyberspace governance capabilities of grassroots cadres. Xi Jinping pointed out: “Being adept at using the internet to understand public opinion and carry out work is the basic skill that leading cadres must master under the new circumstances.”[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.4 Grassroots cadres, who have long been on the front line of connecting with the masses, must “frequently go online to take a look, dive in and chat, and speak up.”[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.4 In this regard, it is necessary to forge a “vanguard team” for grassroots cyberspace governance, using methods such as publicity and reporting to leverage their exemplary and leading role; it is necessary to enhance grassroots cadres’ initiative in learning digital technology, provide relevant learning resources and platforms, improve their professional competence and quality, and consolidate the internal cornerstone of the specialization of the governance system; it is necessary to explore the establishment of a grid-based grassroots governance system for cyberspace affairs, precisely matching the needs of the people with public service resources, and extending cyberspace work to the most basic level.

第一，提高基层干部的网络治理能力。习近平指出：“善于运用网络了解民意、开展工作，是新形势下领导干部做好工作的基本功。”[9]4基层干部长期位于联系群众的第一线，更要“经常上网看看，潜潜水、聊聊天、发发声”[9]4。对此，要锻造一支基层网络治理的“先锋队伍”，通过宣传报道等方式，发挥其示范带头作用；要增强基层干部对数字技术的学习主动性，提供相关学习资源和平台，提升其专业能力素质，夯实治理体系专业化的内在基石；要探索建立网信基层网格化治理体系，精准对接群众需求与公共服务资源，将网信工作延伸到最基层。

Second, strengthen the participation of the people in cyberspace governance. The people are the core force for implementing and advancing the foundational work of comprehensive cyberspace governance, and their cyber literacy and degree of participation are directly related to the actual effectiveness of governance. Faced with the current situation where the comprehensive cyberspace governance system has been basically established but the people’s awareness and acceptance show regional and group differences, it is necessary to select and dispatch cadres who possess both a solid theoretical foundation and proficiency in network technology to take up temporary posts on the front line of cyberspace governance, organize experts in relevant fields and form professional teams to carry out nationwide, public-interest science popularization activities, and enhance the cyber literacy of grassroots people. In addition, it is necessary to strengthen the construction of practice education bases for netizens’ cyber civility, promote extensive and in-depth cyber civility construction activities at the grassroots level, actively explore the establishment of “micro-communities” for grassroots popular governance, break down the hierarchical barriers of traditional governance, achieve the sinking and aggregation of governance forces, and consolidate the governance wisdom of grassroots people.

第二，加强人民群众的网络治理参与。人民群众是落实推进网络综合治理基础性工作的核心力量，其网络素养与参与程度直接关系到治理的实际效果。面对当前网络综合治理体系已基本建成但人民群众的认知与接纳程度存在地域性、群体性差异的现状，须选派既具备扎实理论基础又精通网络技术的干部，到网络治理一线岗位挂职锻炼，组织相关领域专家、组建专业团队开展全国性、公益性的科普活动，提升基层群众的网络素养。此外，要加强网民网络文明素养实践教育基地建设，推动基层广泛、深入开展网络文明建设活动，积极探索建立基层群众治理的“微社区”，打破传统治理的层级壁垒，实现治理力量的下沉聚合，凝聚基层群众的治理智慧。

(IV) Strengthen resource synergy and integration, comprehensively pooling the powerful joint force of comprehensive cyberspace governance

（四）强化资源协同融通，全面汇聚网络综合治理的强大合力

To promote the formation and development of the overall pattern of comprehensive cyberspace governance, it is necessary to accelerate the integration and sharing of resources such as infrastructure, technology, and talent, and promote the ubiquitous connection, flexible supply, and efficient allocation of high-quality resources.

推动网络综合治理整体格局的形成发展，须加快实现基础设施、技术和人才等资源的融通共享，促进优质资源的泛在连接、弹性供给和高效配置。

First, strengthen the construction of new-type infrastructure. New-type infrastructure is the key to promoting the formation and development of the overall pattern of comprehensive cyberspace governance. It is necessary to “build a planning and standard system for new-type infrastructure, improve the mechanism for the integrated utilization of new-type infrastructure, promote the digital transformation of traditional infrastructure, broaden diversified investment and financing channels, and improve the coordination mechanism for major infrastructure construction.”[1]1 Xi Jinping, "Hold High the Great Banner of Socialism with Chinese Characteristics and Strive in Unity to Build a Modern Socialist Country in All Respects — Report to the 20th National Congress of the Communist Party of China," *People's Daily*, October 26, 2022. Specifically, it is necessary to accelerate the optimization and upgrading of information and communication networks, build an information superhighway with low latency, large bandwidth, and wide coverage, and support the deep application of technologies such as big data, cloud computing, and artificial intelligence in comprehensive cyberspace governance; it is necessary to promote the optimized layout of data centers and cloud computing platforms, achieving centralized storage, efficient processing, and intelligent analysis of massive data. At the same time, the characteristics of cloud computing platforms, such as elastic expansion and on-demand service, can realize the flexible scheduling and intelligent allocation of resources, promoting the development of comprehensive cyberspace governance in the direction of intelligence and efficiency.

第一，加强新型基础设施建设。新型基础设施是推进网络综合治理整体格局形成发展的关键，要“构建新型基础设施规划和标准体系，健全新型基础设施融合利用机制，推进传统基础设施数字化改造，拓宽多元化投融资渠道，健全重大基础设施建设协调机制”[1]。具体而言，要加快信息通信网络的优化升级，构建低时延、大带宽、广覆盖的信息高速公路，支撑大数据、云计算、人工智能等技术在网络综合治理中的深度应用；要推动数据中心和云计算平台的优化布局，实现对海量数据的集中存储、高效处理与智能分析。同时，云计算平台具有的弹性扩展、按需服务等特性，能够实现资源的灵活调度与智能分配，推动网络综合治理向智能化、高效化方向发展。

Second, increase the intensity of core technology innovation. Xi Jinping emphasized: “To achieve breakthroughs in core technologies, we must take the path of independent innovation.”[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.115 Therefore, it is necessary to focus on frontier technologies such as big data and generative artificial intelligence, take independent research and development as the cornerstone and open cooperation as the pathway, and enhance China’s competitiveness in the field of core technologies. Specifically, by building cooperation platforms for industry, academia, research, and application, encourage in-depth cooperation among innovation entities such as research institutions, universities, and enterprises to jointly address technical challenges in cyberspace governance. At the same time, it is necessary to establish and improve the incentive mechanism for technological innovation, improve the evaluation and transformation mechanism for scientific and technological achievements, and increase the protection, reward, and promotion of core technological achievements. In addition, it is necessary to strengthen exchanges and cooperation with advanced international technologies, actively participate in the formulation of international standards and rules, and enhance China’s international voice in cyberspace governance.

第二，加大核心技术创新力度。习近平强调：“实现核心技术突破必须走自主创新之路。”[9]115因此，必须聚焦大数据、生成式人工智能等前沿技术，以自主研发为基石，以开放合作为途径，提升我国在核心技术领域的竞争力。具体而言，通过搭建产学研用合作平台，鼓励科研机构、高校和企业等创新主体深度合作，共同应对网络治理中的技术难题。同时，要建立健全技术创新激励机制，完善科技成果评价和转化机制，加大对核心技术成果的保护、奖励和推广力度。此外，还要加强与国际先进技术的交流合作，积极参与国际标准和规则的制定，提升我国在网络空间治理中的国际话语权。

Third, improve the talent cultivation system for governance. “Competition in cyberspace is, in the final analysis, competition for talent.”[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.37 In this regard, it is necessary to build a comprehensive, multi-level, and three-dimensional system for cultivating cyberspace talent, “study and formulate an overall plan for talent development in the cyberspace affairs field, and promote the reform of the system and mechanism for talent development.”[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.46 First, it is necessary to strengthen the disciplinary construction of higher education and vocational education in the field of cyberspace governance, integrate the latest network technologies and governance concepts into teaching content, and cultivate more composite talents with both theoretical literacy and practical ability. Second, it is necessary to establish and improve mechanisms for on-the-job training and continuing education, provide pathways for continuous learning for existing cyberspace governance personnel, organize professional skills training, strengthen business capability assessment, help them adapt to changes in technological development and governance needs, and provide them with broad development space and good treatment guarantees, “building a strong team with strong political awareness, professional competence, and good work style.”[9]9 Xi Jinping, *Excerpts from Xi Jinping's Discourse on the Overall National Security Concept*, Beijing: Central Party Literature Press, 2024 edition, p. 50.35

第三，完善治理人才培育体系。“网络空间的竞争，归根结底是人才竞争。”[9]37对此，要构建全方位、多层次、立体化的网络人才培养体系，“研究制定网信领域人才发展整体规划，推动人才发展体制机制改革”[9]46。其一，要加强高等教育和职业教育在网络治理领域的学科建设，将最新的网络技术、治理理念等融入教学内容，培养更多具备理论素养和实践能力的复合型人才。其二，要建立健全在职培训和继续教育机制，为现有网络治理人员提供持续学习的途径，组织专业技能培训、加强业务能力考核，帮助其适应技术发展和治理需求的变化，并为其提供广阔的发展空间和良好的待遇保障，“建设一支政治强、业务精、作风好的强大队伍”[9]35。

Online editor: Tong Xin

网络编辑：同心