Original Title: Notice of the General Office of the Shanghai Municipal People’s Government on Issuing the “Action Plan for the High-Quality Development of Shanghai’s Specialized Industrial Parks (2024–2026)”

Shanghai Municipal Government Office Document [2023] No. 20

To the People’s Governments of All Districts, and All Commissions, Offices, and Bureaus of the Municipal Government:

With the approval of the Municipal Government, we hereby issue to you the “Action Plan for High-Quality Development of Shanghai’s Specialized Industrial Parks (2024–2026).” Please implement it conscientiously.

General Office of the Shanghai Municipal People’s Government

November 7, 2023

Action Plan for the High-Quality Development of Shanghai’s Specialized Industrial Parks (2024–2026)

This Action Plan is formulated to further enhance the role of the city’s specialty industrial parks in driving innovation and breakthroughs, serving as models and leaders, strengthening the clustering of specialty industries and the cultivation of industrial ecosystems, building important functional platforms for high-quality development, and establishing strategic advantages for future industrial development.

I. General Requirements and Main Objectives

Guided by scientific and technological innovation, we will focus on enhancing the development capacity and competitiveness of specialty industrial parks.Focusing on specialized industrial sectors, we will enhance industrial specialization and branding, and plan and develop leading industries, key industries, emerging industries, and future industries. We will build high-quality park entities, optimize the development and operation mechanisms of park platforms, and increase the supply of specialized and comprehensive supporting services. We will foster a robust industrial ecosystem, promote the integrated development of industrial chains, innovation chains, talent chains, and value chains, facilitate the synergy and coexistence of projects and resource elements, and advance the clustering of specialized industries.

By 2026, the city will have approximately 60 specialized industrial parks, attracting around 5,500 high-tech enterprises and specialized, refined, distinctive, and innovative small and medium-sized enterprises (SMEs), with more than 360 national and municipal-level innovation and R&D institutions, and total industrial output value of enterprises above designated size exceeding one trillion yuan.

II. Key Tasks

(1) Implement the Cluster Development Enhancement Initiative

Focus on the layout of flagship industrial chains. Implement a series of key projects to fill gaps, consolidate, and strengthen industrial chains; cultivate more than 10 flagship industrial chains in fields such as integrated circuits, innovative pharmaceuticals and high-end medical equipment, new energy and intelligent connected vehicles, and civil aviation; and establish national advanced manufacturing clusters. (Responsible Units: Municipal Commission of Economy and Information Technology, district governments)

Build Distinctive Industrial Landmarks. Leverage the guiding role of the Shanghai Industrial Map to direct districts in aligning with key industrial positioning. Through coordinated efforts between the municipal and district levels, enhance the investment scale, construction standards, and industrial capabilities of distinctive industrial parks. By 2026, cultivate 5 industrial parks with annual output value exceeding 100 billion yuan and 20 with output value exceeding 10 billion yuan, creating industrial landmarks with greater distinctiveness and influence, and establishing National Demonstration Bases for New Industrialization. (Responsible Units: Municipal Commission of Economy and Information Technology, District Governments)

Foster a robust industrial ecosystem. Attract and cultivate a group of leading enterprises with core technologies and strong spillover effects; foster and cluster high-quality small and medium-sized enterprises (SMEs) with outstanding innovation capabilities and significant growth potential; and support specialized, refined, distinctive, and innovative SMEs in expanding and strengthening their operations. Cluster enterprises across the industrial chain and supporting service providers to build a development system characterized by “leading enterprises taking the lead and SMEs coexisting.” Create 10 distinctive SME industrial clusters with prominent advantages and characteristics. (Responsible Units: Municipal Commission of Economy and Informatization, District Governments)

(2) Implement the Industrial Park Innovation Capacity Enhancement Initiative

Build multi-tiered industrial science and technology innovation platforms. Promote the establishment of a number of national and municipal-level manufacturing innovation centers, industrial innovation centers, and technology innovation centers within specialized industrial parks; attract a cluster of national key laboratories, new-type R&D institutions, and high-level R&D centers to enhance the “concentration of science and technology” in these parks.Fully leverage the disciplinary spillover effects and laboratory platform advantages of universities and research institutions to promote synergy among “industrial parks, urban districts, and university campuses.” Connect with high-quality incubators and other science and technology innovation and entrepreneurship platforms to further refine the mechanism for the transformation, incubation, and industrialization of scientific and technological achievements. Accelerate the formation of more than 10 integrated service platforms for specialty industries. (Responsible Units: Municipal Commission of Economy and Information Technology, Municipal Science and Technology Commission, District Governments)

Accelerate the digital transformation of industrial parks. Enhance the level of “cloud adoption, data utilization, and intelligence empowerment” in industrial parks; deepen the construction of digital infrastructure; and promote the aggregation, integration, and open utilization of public and social data within industrial parks. Achieve full coverage of digital diagnostics for manufacturing enterprises above a certain scale in specialized industrial parks, with a digital transformation rate reaching 85%; and establish more than 10 “platform + industrial park” pilot projects for the Industrial Internet. (Responsible Units: Municipal Commission of Economy and Information Technology, District Governments)

Innovate Green and Low-Carbon Development. Promote the development and utilization of clean energy and energy-saving technological upgrades in industrial parks. Prioritize the development of green and low-carbon industries such as hydrogen energy, energy storage, and green materials. Advance breakthroughs in advanced technologies and processes, promote green manufacturing, develop green products, cultivate green factories, and build green supply chains. Support the establishment of a group of enterprises (and industrial parks) pursuing carbon-neutrality. (Responsible Units: Municipal Commission of Economy and Information Technology, Municipal Development and Reform Commission, Municipal Ecology and Environment Bureau, and district governments)

(3) Implement the Action Plan for Optimizing the Allocation of Production Factors

Optimize the spatial layout of industries. In accordance with industrial guidance and development needs, advance the construction of standard factory buildings for industrial projects in sectors such as biomedicine, integrated circuits, and high-end equipment to enhance the capacity to accommodate high-quality projects. Establish a land reserve pool for specialty industrial parks and support the municipal-level allocation of new construction land quotas to prioritize these parks.Promote “industrial verticalization” and create “smart manufacturing spaces.” Encourage mixed-use and integrated industrial land use models to improve land use efficiency. Clarify that manufacturing enterprises may operate within integrated industrial zones for production and manufacturing provided they meet environmental protection, fire safety, and security requirements. Support flexible land supply measures such as flexible land grants, long-term leases, and lease-to-own arrangements to reduce land acquisition costs for high-quality projects.(Responsible Units: Municipal Planning and Natural Resources Bureau, Municipal Commission of Economy and Informatization, District Governments)

Increase the supply of financial innovation. Support park developers and operators in expanding financing channels through methods such as listing on stock exchanges, Real Estate Investment Trusts (REITs) in the infrastructure sector, bank loans, bond issuance, and trust and insurance products. Make full use of the Shanghai Park High-Quality Development Fund, encourage districts to establish sub-funds, and guide financial markets and social capital to increase investment in projects such as park infrastructure and park renewal. Support parks in establishing specialized industrial development funds to promote the coordinated development of “funds and bases.”(Responsible Units: Municipal Commission of Economy and Information Technology, Municipal Development and Reform Commission, Municipal Bureau of Local Financial Supervision, and district governments)

Accelerate the aggregation of industrial talent in the parks. Focus on building an ecosystem for the integrated development of industry and talent to drive high-quality development in the parks. Relying on industrial talent policies and measures, continue to advance talent recruitment and attract a group of leading talents and teams in specialty industries. Support park enterprises in applying for municipal talent development projects and talent special programs in key industrial sectors. Support park enterprises in conducting vocational skill level assessments to cultivate “Shanghai Artisans” in specialty industries.Streamline talent-related procedures and provide “one-stop” services for talent entering the parks. Support the establishment of municipal industry-education consortia integrating parks, schools, and enterprises to provide crucial talent support for the high-quality development of specialty industrial parks. (Responsible Units: Municipal Human Resources and Social Security Bureau, Municipal Education Commission, Municipal Commission of Economy and Information Technology, District Governments)

Support the construction of affordable rental housing in industrial parks. Improve the layout of affordable rental housing within and around specialized industrial parks. Support the centralized construction of affordable rental housing within industrial parks, and encourage large enterprises aligned with industrial development priorities to utilize their project-specific construction quotas to build dormitory-style affordable rental housing, thereby promoting the integrated development of industry and urban areas. (Responsible Units: Municipal Housing Administration Bureau, Municipal Commission of Housing and Urban-Rural Development, Municipal Planning and Natural Resources Bureau, Municipal Commission of Economy and Information Technology, and district governments)

Enhance the supply of supporting facilities. Actively develop integrated power generation, transmission, consumption, and storage systems as well as multi-energy complementary systems, and promote the construction of green microgrids centered on distributed renewable energy combined with energy storage. Upgrade the capabilities of new infrastructure in industrial parks, and advance the deployment and construction of 5G base stations, industrial internet platforms, big data centers, and new energy vehicle charging stations within these parks.(Responsible Units: Municipal Commission of Economy and Information Technology, Municipal Development and Reform Commission, Municipal Planning and Natural Resources Bureau, Municipal Ecology and Environment Bureau, Municipal Commission of Housing and Urban-Rural Development, Municipal Emergency Management Bureau, and district governments)

(IV) Implement the Industrial Park Core Empowerment and Efficiency Enhancement Initiative

Strengthen the development and management of industrial park entities. Create a group of specialized, high-level industrial parks with distinctive features, and cultivate a group of operational service teams that understand the industry, excel in management, and provide strong services. Through methods such as introducing mature external institutions and cultivating professional internal teams, provide industrial park enterprises with specialized supporting services in areas such as technological innovation, investment and financing, and talent development. Strengthen dynamic assessments of industrial park development and operational management, and stimulate the innovative vitality of industrial park entities through institutional innovations in investment promotion incentives and performance evaluations.(Responsible Units: Municipal Commission of Economy and Informatization, Municipal State-owned Assets Supervision and Administration Commission, District Governments)

Build the brand of specialty industrial parks. Deepen the implementation of “district-to-district cooperation and brand synergy” to promote resource sharing and complementary advantages between specialty industrial parks and mature brand parks such as Lingang, Zhangjiang, and Hongqiao. Establish the “Zhangjiang R&D + Shanghai Manufacturing” brand to drive improvements in the development level and operational quality of specialty industrial parks. Support the introduction of high-quality domestic and international park operators to collaborate on park development, institutional innovation, and industrial cultivation.(Responsible Units: Municipal Commission of Economy and Informatization, Municipal State-owned Assets Supervision and Administration Commission, District Governments)

Establish and improve a collaborative investment promotion mechanism for industrial parks. Leveraging the Shanghai Enterprise Service Cloud and the Shanghai Investment Promotion Platform, compile investment promotion handbooks for specialized industrial parks; encourage these parks to jointly build shared investment promotion platforms; deepen the integration, sharing, and utilization of project information resources; and explore the establishment of profit-sharing mechanisms. Innovate targeted investment promotion models by strengthening efforts in attracting leading enterprises, platform-based promotion, channel-based promotion, application scenario-based promotion, and industrial chain-based promotion, and utilize digital tools to conduct targeted investment promotion.(Responsible Units: Municipal Commission of Economy and Information Technology, Municipal Development and Reform Commission, District Governments)

(5) Implement the Policy Innovation and Capacity-Building Initiative

Increase support through targeted policies. Support eligible specialty industrial parks in being incorporated into the construction and management of the Zhangjiang National Independent Innovation Demonstration Zone (hereinafter referred to as the “Demonstration Zone”), and promote the extension of the Demonstration Zone’s special policies to cover specialty industrial parks. Support specialty industrial parks in establishing public service platforms such as innovation centers and testing institutions; provide up to 2 million yuan in funding support at the municipal level, and encourage districts to increase their matching support.Strengthen the coordinated development of specialty industrial parks and the Shanghai Pilot Free Trade Zone; optimize the customs supervision model for the integrated circuit industry; and expand the pilot scope of the joint supervision mechanism for special items. (Responsible Units: Municipal Commission of Economy and Information Technology, Shanghai Science and Technology Innovation Office, Municipal Finance Bureau, Shanghai Customs, and district governments)

Explore policies for the renewal and upgrading of industrial parks. Establish an industrial land renewal mechanism featuring government coordination, market-driven operations, and multi-stakeholder participation, with a primary focus on “converting industrial land to industrial use” to accelerate the process of “replacing old industries with new ones.” Encourage districts and industrial parks to explore and develop policies for development loans and interest subsidies for “converting industrial land to industrial use” to reduce renewal costs.Encourage various entities, including state-owned, private, and foreign-invested enterprises, to accelerate the revitalization of existing land in specialty industrial parks. (Responsible Units: Municipal Commission of Economy and Information Technology, Municipal Commission of Housing and Urban-Rural Development, Municipal Bureau of Planning and Natural Resources, Municipal Development and Reform Commission, Municipal State-owned Assets Supervision and Administration Commission, and district governments)

Streamline channels for pilot policies. Support specialty industrial parks located in key functional zones in conducting integrated policy innovation, promoting breakthroughs in pilot initiatives such as spatial planning, industrial investment promotion and operations, revitalization of existing space, technical standards, and application scenarios; once conditions are ripe, these initiatives may be replicated and promoted in other specialty industrial parks. (Responsible Units: Municipal Commission of Economy and Information Technology, Municipal Commission of Development and Reform)

III. Support Measures

(1) Strengthen Organizational Implementation

Relying on the relevant mechanisms of the Municipal Industrial Park and Structural Adjustment Leading Group, the Leading Group Office (Municipal Commission of Economy and Information Technology) shall coordinate the establishment and management of the city’s specialized industrial parks, while relevant municipal departments shall collaborate to advance related work in accordance with their respective responsibilities. Each district shall optimize and refine its development plan for specialized industrial parks in accordance with the principle of “one plan per district, one scheme per park, one policy per enterprise, and one evaluation per year.”

(2) Formulating Construction Guidelines

Develop construction guidelines for specialty industrial parks to standardize mechanisms and procedures for application, public announcement, operation, evaluation, and exit. Establish a municipal-level statistical system for specialty industrial parks to strengthen statistical analysis of their development and operations, and promptly monitor indicators such as industrial clustering, growth potential, competitiveness, and innovation capacity. Implement a star-rating evaluation system for specialty industrial parks to promote a model of “construction first, evaluation later,” provide categorized guidance, ensure a dynamic entry and exit mechanism, and maintain dynamic management.

(3) Strengthening Demonstration and Leadership

Promote the exploration of specialized industrial parks in areas such as spatial infrastructure, enterprise services, operational management, and ecosystem cultivation. Create a group of benchmark specialized industrial parks to serve as models, and intensify the promotion and dissemination of relevant experiences, practices, and exemplary cases.