in your data '2,2' is one string. But csv reader can deal with this:
import csv
result = []
with open("data", 'r') as f:
r = csv.reader(f, delimiter=",")
# next(r, None) # skip the headers
for row in r:
result.append(row)
print(result)
[["'1'", "'2'", "'3'"], ["'1", "1'", "'2", "2'", "'3", '3']]
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solved CSV IO python: converting a csv file into a list of lists