Abstract: Evidence is the resource and tool for evidence-based decision-making, and data is the underlying source of evidence. In the transition from massive data to effective evidence, it often encounters various endogenous factors. Only by clarifying the transformation dilemma and proposing a relief strategy can we cross the "last mile" of transformation and realize the function of evidence-based decision-making to the greatest extent. This article uses the concept and steps of horizon scanning as reference, and builds a holistic research framework of scanning multi-point dilemma, describing multidimensional variables and multi-path responsing, from the perspective of skewed problem identification, dynamic problem diagnosis, and steady problem solving. It further analyzes the variable factors that cause the dilemma by scanning and portraying of the transformation dilemma.On this basis, from the four dimensions of optimizing the system and mechanism settings, broadening the evidence-supplied channels, strengthening the interaction of the main interface, and improving the empowerment of technical tools, it proposes countermeasures to alleviate the transformation dilemma.

Key words: Evidence-based decision-making, Data, Evidence, Transformation, Horizon scanning