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They interesting thing here is that "public data" is established as a category. Once a category for "public data" with state ownership legally exists, then the state has recourse to decide what goes in that category.
Went back for a re-read: "Public data" basically defined as data collected by city government agencies, or companies and institutions that serve public functions. Here's a draft for anyone who wants a read: http://sf.sz.gov.cn/gkmlpt/content/7/7892/post_7892072.html#2725 …
Enterprises / institutions serving public functions "can include but are not limited to education, health, water supply, power supply, gas supply, heating, finance, telecommunications, and public services that are closely related to the interests of the people."
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