Original Title: Three-Year Action Plan for High-Quality Development of the China (Suzhou) Cross-Border E-Commerce Comprehensive Pilot Zone (2024–2026)
To thoroughly implement the "Opinions of the General Office of the State Council on Accelerating the Development of New Forms and Models of Foreign Trade" (State Council General Office Document [2021] No. 24), the "Measures to Support the Development of Overseas Warehouses for Cross-Border E-Commerce" (Commerce Letter [2023] No. 597),the “Notice of the General Office of the Provincial Government on Several Measures to Accelerate the Development of New Forms and Models of Foreign Trade” (Su Zheng Ban Fa [2022] No. 10), to accelerate the cultivation of new forms and models of cross-border e-commerce, stimulate new momentum in foreign trade, and promote high-quality development of foreign trade,In accordance with the relevant guidelines set forth in the "Jiangsu Province Action Plan for Promoting the High-Quality Development of Cross-Border E-Commerce (2023–2025)" (Su Zheng Ban Fa [2023] No. 39), the following action plan is hereby formulated.
I. General Requirements
Guided by Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, we will thoroughly implement the spirit of the 20th National Congress of the Communist Party of China and earnestly carry out General Secretary Xi Jinping’s important instructions on “promoting the innovative development of foreign trade” delivered during his inspection tour of Jiangsu, integrating the promotion of high-quality development of cross-border e-commerce into Suzhou’s new practices of Chinese-style modernization.Adhering to the new development philosophy, we will seize the strategic window of opportunity for cross-border e-commerce development. We will focus on expanding business scale, enhancing platform functionality, and improving service capabilities. Leveraging the strengths of manufacturing and industrial clusters, we will build core competitiveness in cross-border e-commerce development. We will steadfastly promote the transformation and upgrading of traditional foreign trade and the global expansion of the “Suzhou Manufacturing” brand, forging a “Suzhou Path” for cross-border e-commerce development and concentrating efforts on building a new hub for high-quality cross-border e-commerce development.
II. Development Goals
By 2026, Suzhou will be established as a leading city in cross-border e-commerce development, characterized by a large industrial scale, strong innovation capabilities, comprehensive infrastructure, an optimal development ecosystem, and a high level of international exchange and cooperation.The development system and mechanisms featuring “city-level coordination, sector-wide collaboration, and inter-departmental synergy” will be further refined. The coverage, operability, differentiation, and targeting of the cross-border e-commerce policy framework will be comprehensively enhanced. A full-chain ecosystem for cross-border e-commerce operations will be fully established, and a global overseas marketing network will be preliminarily built, further strengthening its driving role in foreign trade and economic development: The value of cross-border e-commerce imports and exports processed through customs supervision platforms will more than double annually, with the goal of reaching 150 billion yuan;The total area of overseas warehouses built and operated by local enterprises will exceed 1.5 million square meters. Each county-level city (district) will establish at least two cross-border e-commerce industrial parks (clusters) with significant agglomeration effects and complete ecosystems, and cultivate one to two cross-border e-commerce industrial belts with regional characteristics. The export scale of Changshu City’s textile and apparel industry belt and the home and office furnishings industry belt in the Industrial Park will exceed 10 billion yuan;Kunshan City’s maternal and child health industry belt will exceed 70 billion yuan in export volume; Wujiang District’s silk fabric, Wuzhong District’s smart home appliances, and High-Tech Zone’s photovoltaic and new energy industry belts will each exceed 50 billion yuan in export volume; Zhangjiagang City’s plastic beverage machinery, Taicang City’s auto parts and accessories, Xiangcheng District’s healthy home furnishings, and Gusu District’s wedding and formal wear industry belts will each exceed 30 billion yuan in export volume.
III. Key Tasks
(1) Expand the Scale of Market Entities and Industries.
1. Accelerate corporate transformation and the creation of benchmark enterprises. Support traditional manufacturing, foreign trade, and domestic e-commerce enterprises in expanding globally online, breaking free from the path dependency of prioritizing production over sales. Promote breakthroughs in cross-border e-commerce for high-value-added industries such as new energy, advanced materials, high-end equipment, automotive electronics and components, and next-generation artificial intelligence. Encourage enterprises to strengthen the innovative application of new digital tools such as artificial intelligence and big data, and enhance the networking, digitization, and intelligence of corporate operations.Each year, a new batch of benchmark enterprises that have made significant contributions to the development of cross-border e-commerce, possess strong social influence, and serve as exemplary representatives will be designated, and these designated enterprises will receive priority policy support. Each year, at least 600 traditional foreign trade and manufacturing enterprises will be encouraged to engage in cross-border e-commerce operations; by 2026, the number of entities engaged in cross-border e-commerce across the city will exceed 15,000; and the cross-border e-commerce import and export volume processed through customs supervision platforms in each county-level city (district) will more than double annually.(The Municipal Development and Reform Commission, Municipal Industry and Information Technology Bureau, Municipal Finance Bureau, Municipal Commerce Bureau, Municipal Taxation Bureau, Suzhou Customs, and the People’s Bank of China Suzhou Branch shall be responsible according to their respective duties; the people’s governments (administrative committees) of each county-level city (district) shall implement these measures. For this item and all subsequent items, the people’s governments (administrative committees) of each county-level city (district) shall be responsible for implementation, and this will not be listed separately.)
2. Intensify efforts to attract leading platforms. Adopt a task-force approach, use a targeted list, and focus on attracting a batch of key cross-border e-commerce platform projects. Support county-level cities (districts) in attracting leading platforms, and provide priority support to leading platform projects that demonstrate strong exemplary, leading, and radiating effects.Leverage industrial and supply chains to facilitate the establishment of leading cross-border e-commerce export platforms in Suzhou, and encourage large platforms to set up regional headquarters, operational centers, service centers, innovation centers, and consolidation centers in Suzhou. Intensify efforts to attract cross-border e-commerce retail import platforms, expand the scale of imports of high-quality consumer goods and high-value-added products, and promote consumption upgrading. (The Municipal Development and Reform Commission, the Municipal Finance Bureau, and the Municipal Commerce Bureau shall be responsible in accordance with their respective duties)
3. Intensify the recruitment of leading projects. Focusing on the development of the cross-border e-commerce ecosystem, we will increase efforts to attract projects involving brand sellers, supply chains, logistics, and financial payment services to address Suzhou’s current shortcomings in the absence of major sellers and service-oriented enterprises. By organizing events such as seller conferences and industry matchmaking sessions, we will deepen integration with Suzhou’s industrial clusters and foster a favorable environment for the development of cross-border e-commerce. (The Municipal Development and Reform Commission, Municipal Finance Bureau, Municipal Transportation Bureau, and Municipal Commerce Bureau shall be responsible according to their respective duties)
4. Promote the development of cross-border e-commerce industrial belts. Leverage the high quality and high value-added nature of “Suzhou-made” products to comprehensively assess the development status of cross-border e-commerce industrial belts. Adhering to the principles of “one policy per industry” and “one specialty per district,” guide each county-level city (district) in formulating action plans for the international expansion of their industrial belts.Support industries such as apparel and wedding dresses—which are typically exported via small-package shipments—to achieve transparent and compliant exports through the 9610 model. Promote the integrated development of goods without invoices and market procurement trade. Explore the formation of an overseas expansion model supported by specialized markets and characterized by small-order rapid response and personalized customization. Support the establishment of consolidation centers in industrial agglomeration areas.Support leading enterprises in industries such as smart home appliances and mechanical equipment to accelerate digital transformation, vigorously cultivate local vertical platforms, and foster a dynamic where industry leaders serve as the core, integrate supply chains, and drive upstream and downstream associated enterprises to go global collectively. Support sectors such as textile fabrics and silk intangible cultural heritage in strengthening the formulation of industry standards and exploring new pathways for the cross-border expansion of traditional non-standardized products.By 2026, the city will establish 50 model enterprises under the “Industrial Belt + Cross-Border E-Commerce” initiative, and each county-level city (district) will establish more than 30 key demonstration enterprises under the same initiative. (The Municipal Cyberspace Administration Office, Municipal Development and Reform Commission, Municipal Industry and Information Technology Bureau, and Municipal Commerce Bureau shall be responsible according to their respective duties)
5. Strengthen the brand-oriented development of cross-border e-commerce. Improve the system for brand awareness, development, promotion, and support in cross-border e-commerce, promoting brand creation for “unbranded” products and the enhancement of “well-known” brands. Encourage OEM and ODM enterprises to register their own brands and establish independent marketing channels, and encourage domestic brands to become influential international brands through cross-border e-commerce. By 2026, the city aims to have 10,000 proprietary brands entering international markets and 40 cross-border e-commerce export brands with international influence.Support enterprises in applying for provincial-level recognition as well-known cross-border e-commerce brands, vigorously develop the DTC (Direct-to-Consumer) independent website model, and provide funding support for the construction and promotion of independent websites for eligible enterprises. Guide enterprises to strengthen their awareness of intellectual property protection, enhance overseas trademark registration and international certification, and increase investment in intellectual property protection. (Municipal Bureau of Commerce, Municipal Market Regulation Bureau, and Suzhou Customs, responsible according to their respective duties)
(2) Improve the support system for cross-border e-commerce development.
6. Establish specialized and efficient cross-border e-commerce logistics channels. Accelerate the construction of the Suzhou International Mail Exchange Station, expand international mail transport channels, and establish a “three-in-one” port integrating international mail, express parcels, and cross-border e-commerce. Leverage the role of Suzhou Port as a cross-border e-commerce logistics hub, strengthen cooperation with major neighboring ports, and utilize new transport modes such as “water-water intermodal transport,” “rail-water intermodal transport,” “bulk-to-container conversion,” and “containerized freight” to diversify cross-border e-commerce logistics options.Leverage the advantages of channels such as the China-Europe Trucking Service and the China-Europe Railway Express to regularly operate dedicated cross-border e-commerce trains on the China-Europe Railway Express. Fully utilize aviation resources in surrounding cities, such as Shanghai Pudong International Airport and Su Nan Shuofang Airport, to explore chartered cargo flights for postal and air cargo services. Continuously maintain the smooth operation of the “Suzhou-Shanghai Cross-Border E-Commerce Transit Channel,” broaden export transit routes for cross-border e-commerce, and improve the operational efficiency of the cross-border customs clearance and logistics chain.Build a multidimensional cross-border logistics system that connects closely with Japan, South Korea, and Taiwan, extends to Central and Eastern Europe, and integrates sea, land, air, rail, and postal transport. (Responsibility lies with the Municipal Development and Reform Commission, Municipal Transportation Bureau, Municipal Commerce Bureau, Suzhou Customs, Municipal Postal Administration, China Post Suzhou Branch, and Suzhou Port Administration Committee according to their respective duties)
7. Improve the layout and service capabilities of global overseas warehouses. Support enterprises in optimizing the layout of overseas warehouses in traditional markets, enhance the efficiency of overseas warehouse construction and utilization, and guide enterprises to accelerate the deployment of overseas warehouses in emerging markets. Establish a smart public service platform for overseas warehouses, and encourage traditional foreign trade enterprises, cross-border e-commerce enterprises, and warehousing and logistics enterprises to achieve resource sharing and win-win cooperation in terms of premises, facilities, talent, information, and services.Continue to promote the construction of provincial and municipal public overseas warehouses, and provide corresponding construction investment subsidies for public overseas warehouses recognized by the commerce department. Encourage enterprises to build specialized overseas warehouses for cargo hubs and logistics distribution along the China-Europe Railway Express routes and at key nodes, expand services such as integrated warehousing and distribution, marketing and display, and after-sales maintenance, and transform overseas warehouses into a key link in the logistics system and a new hub for “Suzhou Manufacturing” going global.Support overseas warehouse enterprises in enhancing their digital infrastructure, diversified services, and localized operations, and in expanding business models such as “live streaming from warehouses” and “front-end exhibition, back-end warehousing.” (The Municipal Development and Reform Commission, Municipal Bureau of Industry and Information Technology, Municipal Transportation Bureau, Municipal Commerce Bureau, Municipal Postal Administration, and People’s Bank of China Suzhou Branch shall be responsible according to their respective duties)
8. Accelerate the development of cross-border e-commerce industrial parks. Guide all county-level cities (districts) to leverage their comparative advantages in industries and resources to establish a new batch of distinctive, fully-functional cross-border e-commerce industrial parks. Increase efforts to attract high-quality domestic park operators, and encourage platforms such as the Yangcheng Digital Valley in the Industrial Park to build multi-story cross-border e-commerce industrial parks focused on cultivating major sellers and developing service ecosystems.Support Changshu City, Kunshan City, Wujiang District, and Wuzhong District in leveraging the strengths of their respective industrial clusters—textiles and apparel, maternal and child health, silk fabrics, and smart home appliances—to establish cross-border e-commerce industrial parks that aggregate multiple business formats, including product selection centers, supporting services, and supply chains. Support the High-Tech Zone in actively exploring institutional, regulatory, and service innovations within cross-border e-commerce industrial parks. Incorporate the construction of cross-border e-commerce industrial parks into regional performance evaluations and utilize industrial parks to build clusters for Suzhou’s digital economy.(Responsibility: Municipal Bureau of Natural Resources and Planning, Municipal Bureau of Commerce)
9. Drive breakthroughs in cross-border e-commerce imports. Support the development of a circulation system for imported cross-border e-commerce goods. Focusing on building a “trade + logistics” supply chain model, guide and support cross-border e-commerce import traders in collaborating with logistics enterprises to implement new models of joint and shared delivery. Steadily advance pilot programs for “cross-border e-commerce bonded import via online shopping + physical new retail” operations. Establish a “cross-border e-commerce retail import return center warehouse” model and develop innovative formats such as “bonded zones + live streaming” and “experience stores + live streaming.”(Responsibility lies with the Municipal Development and Reform Commission, Municipal Finance Bureau, Municipal Commerce Bureau, Municipal Market Regulation Bureau, and Suzhou Customs according to their respective duties)
(3) Optimize the ecosystem for government services and business support.
10. Strengthen regulatory innovation in cross-border e-commerce. Focus on core aspects of cross-border e-commerce operations—including customs clearance, foreign exchange settlement, payments, logistics, and tax refunds—to accelerate innovation in regulatory services. Leverage the advantages of platforms such as pilot free trade zones, comprehensive bonded zones, and overseas warehouses to foster the continuous emergence of new business formats and models in cross-border e-commerce, while continuously improving the service levels of government departments through reform and innovation.Explore ways to optimize the tax refund process for cross-border e-commerce exports via overseas warehouses and innovate policy support models combining “cross-border e-commerce” with “comprehensive foreign trade services.” Fully draw on regulatory experiences and models from Guangdong, Zhejiang, and other regions; strengthen the “prudent and inclusive” work philosophy; establish dedicated task force mechanisms; create a cross-border e-commerce error-tolerance and correction mechanism; and explore systems for “exemption from penalties or lenient penalties.” (Responsibility lies with the Municipal Finance Bureau, Municipal Commerce Bureau, Municipal Taxation Bureau, and Suzhou Customs according to their respective duties)
11. Improve the comprehensive service system for cross-border e-commerce. Implement the service system for key cross-border e-commerce enterprises across the city, establish a regular and standardized government-enterprise communication mechanism, and provide enterprises with dedicated task force services and “one-enterprise-one-policy” targeted support. Continue to advance the construction of cross-border e-commerce enterprise service centers, striving to establish a comprehensive, one-stop service center covering the entire cross-border e-commerce supply chain.Optimize the management and operation models of the Suzhou Cross-Border E-Commerce Comprehensive Pilot Zone’s online service platform, and continuously enhance and improve its online service functions. Create a 24-hour service ecosystem that integrates offline service centers with online platforms, adding more than 600 new enterprises served annually. (Responsibility lies with the Municipal Finance Bureau, Municipal Human Resources and Social Security Bureau, Municipal Commerce Bureau, Municipal Taxation Bureau, Suzhou Customs, and the People’s Bank of China Suzhou Branch, according to their respective duties)
12. Strengthen the Recruitment and Training of Cross-Border E-Commerce Talent. Increase efforts to recruit talent in areas such as rare languages, operations, and marketing for the cross-border e-commerce sector. Encourage the organization of specialized job fairs and university-enterprise matching events for cross-border e-commerce talent, and attract various types of cross-border e-commerce professionals to settle in Suzhou through a “going global + bringing in” approach. Promote the implementation of employment incentive mechanisms for cross-border e-commerce talent, providing preferential treatment in areas such as residency registration, housing rental, home purchase, and children’s school enrollment to eligible individuals, and support eligible enterprises and individuals in applying for relevant talent awards from Suzhou City.Improve the multi-tiered cross-border e-commerce talent cultivation system through collaboration among the government, universities, enterprises, and associations. Establish a municipal-level e-commerce talent training base; support universities and vocational colleges in strengthening the development of cross-border e-commerce programs; support the implementation of targeted training programs in partnership with enterprises; launch specialized cross-border e-commerce training courses for top executives; and support the joint construction of off-campus practical training bases by schools and enterprises.Support the organization of cross-border e-commerce skills competitions and innovation and entrepreneurship contests, and integrate talent recruitment fairs and investment promotion events into these competitions to create new pathways for talent selection and project attraction through a “competition-plus-event” model. Encourage training institutions to actively conduct cross-border e-commerce-related vocational skills training, and provide training subsidies to eligible participants in accordance with relevant policies. (Responsibility lies with the Municipal Party Committee Talent Office, Municipal Education Bureau, Municipal Human Resources and Social Security Bureau, and Municipal Commerce Bureau according to their respective duties)
13. Increase the supply of innovative financial products. Actively coordinate with the National Fund for the Innovative Development of Trade in Services. Encourage financial institutions to innovate financial service models, explore the launch of new financing services such as full-chain credit insurance for cross-border e-commerce combined with policy-backed financing, and strengthen collaborative services for upstream and downstream sectors of the cross-border e-commerce industry chain. Provide low-threshold, low-interest, and easily accessible credit support to eligible small and micro cross-border e-commerce enterprises.Promote innovative practices such as the “Hai Mao Loan” and support the development of innovative financial products such as cross-border e-commerce return insurance and overseas warehouse inventory financing. Promote the establishment of cross-border e-commerce industry funds in key sectors and improve financial safeguards for Suzhou’s cross-border e-commerce enterprises. (Responsibility lies with the Municipal Finance Bureau, Municipal Commerce Bureau, Municipal Local Financial Regulatory Bureau, Municipal Taxation Bureau, People’s Bank of China Suzhou Branch, Suzhou Regulatory Sub-bureau of the National Financial Regulatory Administration, and Sinosure Suzhou Office, in accordance with their respective duties)
14. Strengthen cross-regional cooperation and exchange. Actively connect with resources from leading cross-border e-commerce cities such as Guangzhou, Shenzhen, Ningbo, Hangzhou, and Yiwu; deepen cooperation with renowned industry organizations and research institutions in these regions; enhance coordination and resource sharing with institutions such as Guangzhou’s “Three Centers” for cross-border e-commerce and Hangzhou’s Cross-Border E-Commerce Knowledge Service Center; and jointly build a public service system and an authoritative, end-to-end resource matching platform for the cross-border e-commerce new economy industry.Facilitate cooperation between our city’s leading manufacturing brands and top sellers in the aforementioned cities, assist enterprises in accessing supply chain resources, and guide cross-border e-commerce enterprises toward healthy and compliant development. (Responsibility: Municipal Bureau of Commerce)
15. Support enterprises in expanding markets through multiple channels. Make full use of key cross-border e-commerce industry exhibition resources, such as the Shenzhen International Cross-Border E-Commerce Trade Expo and the China Cross-Border E-Commerce Fair (Autumn). Organize key enterprises from industrial clusters to visit and exhibit in emerging cross-border e-commerce markets in Southeast Asia, the Middle East, and Russia, assisting enterprises in expanding overseas. Encourage and guide enterprises to explore emerging cross-border e-commerce markets, attract overseas talent, establish overseas service stations, and support enterprises in expanding their overseas marketing networks and conducting localized business operations.Actively develop Silk Road e-commerce, deepen cooperation on trade facilitation under the Belt and Road Initiative, and implement free trade agreements such as the RCEP to high standards, thereby expanding the international development space for cross-border e-commerce enterprises. (Municipal Overseas Chinese Affairs Office, Municipal Development and Reform Commission, Municipal Commerce Bureau, and Municipal Federation of Returned Overseas Chinese, according to their respective responsibilities)
(4) Strengthen Standardization Guidance for Cross-Border E-Commerce.
16. Enhance capacity building for cross-border e-commerce standardization. Explore the development of a cross-border e-commerce standards system; study the current status of cross-border e-commerce standards and the framework of the standards system; conduct training and specialized guidance to improve standardization capabilities; and focus on exploring the formulation of industry and local standards, particularly regarding digital marketing for non-standardized export products. Support cross-border e-commerce associations, social organizations, capable enterprises, and institutions—such as research centers—to actively participate in cross-border e-commerce technological innovation and business model integration, as well as in the formulation of industry, national, and international standards.(Responsibility lies with the Municipal Bureau of Commerce and the Municipal Market Regulation Bureau according to their respective duties)
17. Strengthen the development of the cross-border e-commerce credit system. Leveraging the online integrated service platform of the Suzhou Cross-Border E-Commerce Comprehensive Pilot Zone, integrate credit information systems across various departments. Combine this with credit rating implementation to gradually establish a corporate credit information database. Based on this credit data foundation, financial institutions such as banks should provide cross-border e-commerce enterprises with advance credit lines and proactive services.Intensify efforts to cultivate the creditworthiness of cross-border e-commerce enterprises, and prioritize the development of enterprises eligible for Customs Advanced Certification. Establish a “credit-plus-risk” regulatory mechanism to combat fraudulent activities, intellectual property infringement, and the sale of counterfeit goods by cross-border e-commerce enterprises. (Municipal Development and Reform Commission, Municipal Industry and Information Technology Bureau, Municipal Commerce Bureau, Municipal Market Regulation Bureau, and Suzhou Customs shall be responsible in accordance with their respective duties)
IV. Support Measures
(1) Strengthen Coordination. Leverage the mechanism of the Leading Group for the Construction of the Cross-Border E-Commerce Comprehensive Pilot Zone. A municipal-level leading official will spearhead the establishment of a dedicated task force, make full use of the regular interdepartmental meetings on cross-border e-commerce, and strengthen the coordination of pilot zone construction and cross-border e-commerce industry development. All departments must, in accordance with their respective functions, earnestly implement this action plan and continuously promote regulatory optimization, policy refinement, and business innovation.The people’s governments (or administrative committees) of each county-level city (district) shall establish corresponding working mechanisms modeled after the municipal-level cross-border e-commerce promotion mechanism, highlight development priorities, refine tasks and measures, and ensure the implementation of work.
(2) Strengthen Policy and Financial Support. When formulating policies for their respective special funds, all departments should consider including cross-border e-commerce within the scope of support. Municipal-level special policies should be formulated and introduced to strengthen support for key areas and critical links. County-level cities (districts) are encouraged to research and formulate local cross-border e-commerce development plans, introduce supplementary policies, increase the level of support, and expand the pool of available funds.
(3) Strengthen Evaluation and Incentives. Strengthen process supervision and target-based evaluation, and incorporate cross-border e-commerce development indicators into the “Promoting High-Quality Development” evaluation for county-level cities (districts) to ensure that responsibilities are fully implemented, work is effectively advanced, and tangible results are achieved. All relevant municipal departments and the people’s governments (administrative committees) of county-level cities (districts) shall study and formulate implementation measures, prioritize key areas, clarify tasks, and assign responsibilities.
