The intelligent transformation of grassroots governance is a key path to enhance governance efficiency and promote the modernization of national governance. However， the imbalance of technological empowerment has created new barriers to participation， which hinders the achievement of diverse governance and precise service goals. By reviewing relevant literature and analyzing the governance model of the "root database" in Ordos， a collaborative framework for resolving participation barriers between "demand-driven" and "technology-embedded" is constructed.The practical mechanism of demand-driven governance follows the progressive logic of demand consensus， demand symbiosis， and demand co-increase； the technology-embedded path relies on the coordinated efforts of three empowerment mechanisms： agile response， flexible governance， and buffering mechanisms.Demand-driven provides value guidance and resource foundation for technology embedding， while technology embedding provides practical paths for demand satisfaction through localization adaptation. At the same time， there is a risk of decreased response efficiency in demand-driven development， and there is a risk of imbalanced adaptability in technology embedding. Measures such as strengthening cross-departmental collaboration， enhancing grassroots demand conversion capabilities， optimizing participation channels， and promoting technology to take root in practice need to be taken to address this issue.