Data-Driven Systemic Governance for Smart-City–Regional Emergency Collaboration: Evidence from China’s National Big Data Comprehensive Pilot Zones

Smart-city governance increasingly relies on data infrastructures to connect public agencies, digital platforms, and urban services; however, complex emergencies continue to expose fragmentation in information sharing, administrative responsibilities, and cross-boundary coordination. A key unresolved question is whether data-driven policy experimentation can strengthen the institutional foundations of emergency collaboration. In this study, we examine China’s National Big Data Comprehensive Pilot Zones as a systemic governance intervention and apply a multi-period difference-in-differences model to estimate the effect of pilot-zone construction on the policy-text-based institutionalization of emergency collaboration, using provincial panel data for 30 Chinese provinces from 2010 to 2022. The results show that pilot-zone construction significantly strengthens institutionalized emergency collaboration in provincial policy systems. Mechanism tests provide evidence consistent with two complementary pathways: emergency-related technological innovation, measured by granted patents screened through IPC/CPC classifications and title–abstract keywords, supports task-specific capacities such as risk sensing, early warning, emergency communication, command support, and resource allocation; digital government strengthens administrative interoperability, data sharing, platform-based coordination, and standardized interdepartmental procedures. Heterogeneity analyses show stronger effects in eastern, middle-income, and severely aging regions, suggesting that policy effectiveness depends on implementation capacity, absorptive capacity, and emergency-service demand. This study contributes to systems governance and smart-city research by showing how data-driven policy experimentation can shape the formal institutionalization of emergency collaboration. The findings should be interpreted as evidence of institutionalized policy attention and formal collaborative arrangements rather than direct evidence of field-level emergency response performance.