数据驱动与人工智能赋能：重庆三级治理中心的精准治理能力构建研究

Data-Driven and AI-Enabled: A Study on the Construction of Precise Governance Capacity in Chongqing’s Three-Level Governance Centers

摘要: 超大城市治理的复杂性对传统治理模式构成严峻挑战，亟需向精准化、智能化转型。本文以重庆市构建的市、区县、镇街三级数字化城市运行和治理中心(以下简称“三级治理中心”)为研究对象，探讨其如何通过数据驱动与人工智能(AI)赋能，构建精准治理能力。研究发现，重庆的实践以“1361”总体架构为顶层设计，通过打造“城市大脑”、“实战枢纽”和“执行末端”三级贯通的实体化平台，实现了治理体系的组织重塑。其核心机制在于：构建全域感知、数据汇聚的“超级大脑”，形成对城市运行状态的实时监测；以数据流重构业务流程，建立“感知预警–决策处置–监督评价–复盘改进”的闭环工作体系，推动治理从被动响应转向主动干预；深度开发AI应用场景，通过大模型、智能体等技术实现风险预警、事件分派与决策支持的智能化。本研究认为，重庆的探索不仅实现了从“经验治理”到“数据治理”、从“条块分割”到“整体智治”的范式转型，更通过技术、制度与人的深度融合，为超大城市现代化治理提供了以精准为核心能力跃升的“重庆方案”。然而，数字基础设施的覆盖盲区、基层干部的“数字鸿沟”以及数据安全与伦理等问题，仍是未来需要持续优化的方向。

Abstract: The complexity of megacity governance poses severe challenges to traditional models, necessitating a shift towards precision and intelligence. This paper takes Chongqing’s three-level (municipal, district/county, and township/street) digital urban operation and governance centers as the research object, exploring how they construct precise governance capacity through data-driven approaches and Artificial Intelligence (AI) empowerment. The study finds that Chongqing’s practice, guided by the top-level “1361” framework, has reshaped the governance system by establishing a physically integrated platform comprising the “urban brain”, “practical hub”, and “execution terminal”. Its core mechanisms include: building an omnipresent sensing and data-aggregating “super brain” for real-time monitoring of urban operations; reconstructing business processes with data flows to establish a closed-loop system of “perception-warning, decision-making-disposal, supervision-evaluation, and review-improvement”, shifting governance from passive response to proactive intervention; and deeply developing AI application scenarios, utilizing technologies like large models and intelligent agents to enable intelligent risk warning, event dispatch, and decision support. This research argues that Chongqing’s exploration not only achieves a paradigm shift from “experience-based governance” to “data-driven governance” and from “compartmentalized management” to “holistic intelligent governance”, but also, through the deep integration of technology, institutions, and human factors, provides a “Chongqing Solution” for megacity modern governance centered on precision capability enhancement. However, challenges such as coverage gaps in digital infrastructure, the “digital divide” among grassroots cadres, and issues of data security and ethics remain areas for continuous optimization in the future.