清华大学人工智能国际治理研究院：从共识到行动：构建包容普惠的全球人工智能治理体系

AI当前国际社会取得的共识仍建立在“最低共同标准”之上，共识之维护与实现面临关键挑战。AI20257ChatGPT、GeminiAI全球人工智能治理行动仍存在结构性缺陷，同“包容普惠”的核心目标存在显著的实践落差。ExecutiveEmergingConsensusonGlobalAIAfoundationalconsensusisgraduallytakingshapeamongmultiplestakeholdersthroughongoinginternationalexchangesandinteractions,centeringon“human-centered”principlesofAIgovernanceacrossthreekeydimensions:development,security,andequity.A“Human-Centered”ValueOrientation:ThereisbroadagreementthatthedevelopmentofAIshouldservethewell-beingofhumanityandmustnotinfringeuponfundamentalhumanrightsorhumandignity.BalancingDevelopment,Security,andEquity:Astechnologicalinnovationprogresses,itisimperativetomanageassociatedrisksresponsiblywhileensuringthefairandequitabledistributionofAI’sbenefits.InternationalCooperationastheEssentialpath:ThereissharedrecognitionthatinternationalcollaborationisindispensabletoadvancingeffectiveglobalAIDespitegrowinginternationalagreement,thecurrentconsensusislargelyconfinedto“minimumcommonstandards”andfacesseveralcriticalobstaclestoitspreservationandimplementation:FragilityoftheConsensus:Strategicdivergencesamonggovernments,andexistingconsensusisvulnerabletodisruptionbygeopoliticalfactorsandmajorpowercompetition.Strategicdivergencesamonggovernmentspersist,andtheexistingconsensusremainshighlysusceptibletodisruptionbygeopoliticaltensionsandgreatpowercompetition.WeakBindingForce:Mostcurrentgovernanceframeworkstaketheformofsoftlaw,lackingbindingenforcementmechanisms,aswellasrobustsupervisionandevaluationsystems.ThissignificantlyunderminestheirabilitytoconstrainthebehaviorofbothstatesandontechnologySignificantImplementationGaps:Widedisparitiesineconomicdevelopment,technologicalcapacity,andgovernancemodelsacrosscountriesimpedethebalancedandeffectiveimplementationofglobalagreements.LatestActionsinGlobalAI AIDevelopment:MajorglobalpowersareintensifyinginvestmentsinAI,withastrongemphasisoninfrastructuredevelopment.AttheUNlevel,the25th“AIforGood”GlobalSummit(ITU,July2025)issuedaCo-Chairs’Statementoutliningtenkeyvisions,includingpragmaticgovernance,inclusivecollaboration,andsafetystandards.Atthenationallevel,Chinacontinuestoadvanceits“AI+”initiative,focusingonenhanceddatasupplyandinfrastructurebuilding.TheUnitedStatesunveiledthe$500billionStargatePlantoconstricttheworld'slargestAIinfrastructurenetwork.Meanwhile,TheEUlaunchedtheAIContinentalActionPlan,acceleratingAIdevelopmentthroughpolicyliberalizationandexpandedcomputingpowertoclosethegapwithChinaandtheU.S.AdvancingAIEquity:GlobalconcernoverAIequityisgrowing.AttheUNlevel,the78thUNGeneralAssemblyadoptedaChina-proposedresolutioncallingforenhancedinternationalcooperationonAIcapacity-buildingtohelpdevelopingcountriesbridgethedigitaldivide.Insupport,ChinareleasedtheAICapacity-BuildingActionPlanforGoodandforAll,outliningfivemajorvisionsandtentargetedactionsfocusingoninfrastructureandtalentdevelopment.TheUNHigh-LevelAdvisoryBodyonAIhighlightedthat118GlobalSouthcountrieshaveyettoparticipateinglobalAIgovernanceinitiatives,callingformoreinclusiveframeworks.AttheFebruary2025ParisAIActionSummit,60countriesandinternationalorganizationsissuedajointstatementidentifyingsixpriorityareas,includingclosingthedigitaldivideandbuildingtrustworthyAIecosystems.AdvancingAISafety.AIsafetygovernanceisevolvingintoamulti-level,collaborativeframework.Atthescientificlevel,leadingAIexpertsfromChina,theU.S.,andEuropejointlyissuedtheVeniceStatement（IDAIS,September2024),callingforAIsafetyprotocolstobetreatedasa"globalpublicgood."Around100expertsfrom30countriesreleasedtheInternationalAISafetyReport,underscoringtheimportanceofcross-bordercooperationtoensureglobalcompatibility.Attheindustrylevel,17majorChinesecompaniessignedtheAISafetyCommitment,pledgingtoestablishdedicatedsafetyteamsandimplementmodeltesting.Attheregulatorylevel,theEU'sGeneral-PurposeAICodeofPracticecameintoeffectinJuly2025,offeringclearguidanceontransparency,copyright,andsafetyformainstreamAImodelssuchasChatGPTandGemini.ActionMeaningfulprogresshasbeenmadeacrossdimensionsofdevelopment,equity,andsafety.Overall,globalAIgovernanceismovingfromconceptualexplorationtoconcreteaction,evolvingfromvoluntary,soft-lawapproachestowardmorestructurednormativeandinstitutionalframeworks.Despitetheseadvances,significantstructuralshortcomingsremain,andcurrenteffortsstillfallshortofachievingthecoregoalof“inclusiveandequitable”AIdevelopment.Development:Imbalancespersist,withrisingrisksoftechnologicalmonopolizationandgrowingstrategicdivergenceandcompetitionamongmajorstateactors.Equity:Governancestructureslackadequaterepresentation,withweakimplementationandinsufficientsafeguardmechanisms.Safety:InvestmentinAIsafetyasaglobalpublicgoodisinadequate,andthereisnoestablishedmechanismforsharingglobalrisks.Severalstructuralbarrierscontinuetohinderthetranslationofglobalconsensusintoeffectiveandactionablegovernance:Fundamental AmismatchbetweentherapidpaceoftechnologicaliterationandslowerevolutionofgovernanceCoreBarrier:Anintensifyingconflictbetweengeopoliticalimperativesandthelogicofcollaborativetechnologicalgovernance.PracticalBarrier:DeepstructuralasymmetriesandcapacityshortfallsingovernanceFutureAIgovernancemustnotbeusedasatoolfortechnologicalcompetitionorgeopoliticalrivalry.Instead,itshouldrespectthediverseneedsandstagesofcountries,ensuringthattechnologicalprogressgenuinelyadvanceshumanwell-being—bycontributingtogoalssuchaspovertyeradicationandhealthBuildMoreFlexibleandEfficientAgileGovernancePromotegovernancemodelsthatintegratetraditionalwithemergingapproaches,aswellasroutineandemergencyresponses.ClassifyAIgovernanceissuesbyurgencyandcomplexitytoenabledifferentiatedpolicyresponses.Enhanceregulatoryframeworksthatcoordinatesoftandhardlaw.Incriticalsafetydomains,prioritizebindinginternationalminimumstandards(hardlaw),whileusingsoftlawtools—suchasregulatorysandboxes,technicalstandards,andbestpractices—forrapidlyevolvingareas.Thisallowsforadaptive,trialanderrorlearningandfostersadynamicallybalancedgovernanceEstablishCooperative“SafeZones”andExpandInclusiveInternationalMajorpowersshouldjointlyestablishcooperative“safezones”forAIgovernance—platformsforsustaineddialogueandcoordinationonsharedsafetyconcerns,evenamidgeopoliticaltensions.Issue-specificcooperationshouldbepursuedinareasofcommoninteresttohelpdefuseconfrontationaldynamics.Developa“multi-stakeholder,multi-layered”globalgovernancenetworksthatengagessovereignstates,internationalorganizations,technologycompanies,scientificcommunities,andcivilsociety.Suchinclusivitywillpreventaconcentrationofinfluencebyafewmajorpowersortechgiants,andpromotebroaderlegitimacyandbalance.AdvanceGlobalAIGovernanceCapacitySupportingthegovernancecapacityofdevelopingcountriesshouldbeacentraltaskandlong-termpriority.Leverageopen-sourceecosystemsandtargetedfundingmechanismstoimproveAIinfrastructure,modelcapabilities,andapplicationservicesintheseregions.Establishaglobalknowledge-sharingplatformonAIgovernancetoconsolidatebestpractices,policytoolkits,andlearningresources--loweringtheentrybarriersandreducingcostsforallcountriesparticipatinginAIgovernance.人工智能治理攸关全人类命运，是世界各国面临的共同课题。2024年术——ChatGPT4亿，中国生成式人工智能产品用户规模2.49亿人。交通等行业领域，赋能具体行业产业的生产力跃升。在此驱动下，2024年年技术与创新报告》预测，20334.8万国际组织层面以联合国为中心，协同推进多维度的多边治理框架。国AI治理框架的努力。区域性国际组织则更多聚焦于G7AIG20和OECDAI技术的负责任发展。这些行动凸国家行为体呈现战略分化和规则竞争并行的趋势。各国政府在人工智全球通过对全球人工智能治理相关文件的整合梳理，可以看出G7和G20AI治理资源投入、（20247月-20257月提出未来的人工智能治理应以创ActionPlan）AI基础设施和领导国际外交和安全的三ContinentAction202578日-11251.520253242025行动计划》（WinningtheAIRace:America’sAIActionPlan），旨在落实2025190AIAI2025年4月9（AIContinentActionPlan）AI发展：扩大与沙盒机制）13个EuroHPCAI17提倡通过国际合作帮助发展中国家强化人工智能能力建设，弥合全球数字鸿国家人工智能发展与合作能》（GoverningAIforhumanity）全球AI治理体系，确保IntelligenceAction60个国家和国际组织共同续的人工智能造福人类与20249月，中国在“人工智能能力建设国际合作高级别会议”上提20251月，中国—金砖国家人工智能发展与合作中心（简称“金砖2025260个国家和国际组织共同签署了《关于发展包容、可持AI生态系统、AI创新与产业复苏、塑造劳动力市场、保障可持续发展、深化全球治安全对话100告》（InternationalAISafety文件。该声明明确提出：AI系统的安全协议、验证机制与测试标准，应作总体而言，IDAIS声明的最大价值在于突破了以国家为单位的传统治IDAIS未具备执行20241217310030个国家和国际组织的独立专家：《国际人工智能安全导，将影响包括OpenAIChatGPT、Anthropic的Claude等主流通用人工智202582140多个国家和地区联署，显但发展中国家在人工智能治理中的边缘化地位并未得到根本改变，其在国致能力建设的共识决议尚未能有效转化为实施机制，也未能有效促进发展技术迭代发展同治理体系演进间的速率失配问题是根本障碍。治理能力的结构性不对称和现实短板是现实障碍。全球人工智能治理一是关键的人工智能安