Virtual reality - control or engagement

Hi - I've seen the Mirror world demo and it is impressive, especially with the 3D glasses and on the floor-to-ceiling screen. It occurs to me that VR is often described as a tool for engaging communities, testing out potential changes and including people in choices which will directly affect their environment. But at the same time, much of the 3D modelling is literally top-down, starting as a bird's eye view, and the data modeled (crime statistics, at-risk families) is often to do with control, not choice.

Is MirrorWorld, and similar 3D urban models, a tool for the People (individuals, community groups), or those whose job it is to control them (police, City Council)? What do you think?