Abstract: Data has emerged as a new type of production factor following traditional factors such as land, labor, capital, and technology. The integration of data into social production and service to generate new knowledge and economic value marks the process of realizing data value. Compared to traditional production factors, data exhibits characteristics of non-competitiveness and partial exclusivity. Therefore, the key to realizing public data value lies in achieving network effects and economies of scale through integrated use, public use, and multiple reuse. Cities are macro platforms and institutional domains for data generation, aggregation and circulation. Enhancing the knowledge production efficiency from massive public data in urban settings is imperative for the development of the digital economy. However, the overall mechanism of realizing the value of urban public data, particularly the role of the government, has not been sufficiently theorized. This study aims to identify the mechanisms and governmental roles that drive the value transition from data to knowledge in the realization of urban public data. Beijing, as a pioneering city in developing the digital economy and establishing the data market, serves as the case of this study. To ensure the reliability and validity of the case study, we employ a triangulation approach involving multiple sources of evidence, including field research, semi-structured interviews, policy documents, and statistical data. Based on the case study of Beijing, this research reveals that local government employs two mechanisms, "technological enablement" and "institutional empowerment," to address challenges in data value realization. Technological enablement refers to enhancing the data generation and application capabilities of relevant entities through digital technologies. Institutional empowerment involves defining responsibilities, rights, and interests among various actors through laws, regulations, and policies, providing legitimacy and action incentives. Technology and institutions interact dynamically, mutually relying on each other, where institutions provide legitimacy and public value for technology application, while technology supports the implementation of institutions. The government's role evolves throughout the process of data value-added. In the processes of data production, aggregation, and the transformation of data into information, the government addresses challenges such as limited data scale, dispersed distribution, and privacy concerns by providing generic infrastructure and institutional standards. As information transforms into knowledge, the autonomy of the market become increasingly significant. The government primarily empowers the market through mechanisms such as scenario openness and service procurement. It is noteworthy that, in practice, local governments tend to rely heavily on technological enablement, while the empowering role of institutions remains inadequately utilized. This results in fragmented and incoherent utilization of urban public data. Additionally, the lack of sound institutional frameworks contributes to a certain degree of a "omnipotent government" tendency in current local government practices, potentially inhibiting the autonomy of market entities. This paper contributes by using city as analytical unit, identifying the overall mechanisms of urban public data value realization, and elucidating the evolution of government roles. It expands the theoretical and empirical perspectives on the realization of public data value, providing insights for promoting the development of data market and building a strong digital economy.

摘要： 高效开发城市生产生活中的海量公共数据、提高知识生产效率是发展数字经济的必要路径。然而，现有研究对于城市公共数据价值实现的整体机制，尤其是政府的作用关注较少。本文分析了公共数据基础特征和制度环境，并识别了推动城市公共数据实现从数据到知识的价值跃迁的作用机制与政府角色演进。以北京市建设数字经济城市为案例，研究发现：政府一方面通过技术的赋能作用提升相关主体的数据生产与管理能力，另一方面通过制度的赋权作用划定政府与市场的权责边界与行动激励。政府角色随着数据增值过程而演进，政府在推动数据增值为信息中扮演了共性基础设施和制度标准的主要供给者，而随着数据价值跃迁为知识，市场的自主性力量愈发重要，政府主要通过场景开放、购买服务等方式赋能、赋权市场。本文拓展了公共数据价值实现的理论视角与实证样本，为推动公共数据要素化开发利用与建设数字经济强国提供理论与实践启示。