Original Title: Policy Interpretation of the "Implementation Opinions of the Shanghai Municipal People's Government on Promoting the High-Quality Development of the City's High-Tech Industrial Development Zones"

I. Background of the Formulation of the "Implementation Opinions"

National High-Tech Industrial Development Zones serve as key platforms for implementing China’s innovation-driven development strategy, playing an irreplaceable role particularly in transforming development models, optimizing industrial structures, and enhancing international competitiveness. In July 2020, the State Council issued the “Several Opinions of the State Council on Promoting the High-Quality Development of National High-Tech Industrial Development Zones,” which laid out a comprehensive plan for the development of national high-tech zones in the new era and proposed building them into demonstration zones for innovation-driven development and pilot zones for high-quality development.

Shanghai currently has two high-tech industrial development zones: the Zhangjiang High-Tech Zone and the Zizhu High-Tech Zone. After years of development, the city’s high-tech zones have become major hubs for scientific and technological innovation, sources of original innovation, and mainstays of independent innovation in China.The 22 parks within the Zhangjiang High-Tech Zone span 16 administrative districts across the city, covering a total area of approximately 531 square kilometers. With revenue exceeding 6.2 trillion yuan, the zone is home to 9,346 high-tech enterprises and 309 listed companies (both domestic and international). It houses 330 national-level R&D institutions led by national laboratories, 14 major national science and technology infrastructure facilities, and 40 universities.The Zizhu High-Tech Zone is located in the southeastern part of Minhang District, covering an area of 11 square kilometers, with revenue of 84.1 billion yuan, and hosting 253 high-tech enterprises and 8 listed companies.

To implement the relevant requirements of the State Council, promote the high-quality development of the city’s high-tech zones, effectively transform the advantages of innovation resources into industrial strengths, and ensure that the city’s high-tech zones remain at the forefront nationwide, the Municipal Government issued the “Implementation Opinions of the Shanghai Municipal People’s Government on Promoting the High-Quality Development of the City’s High-Tech Industrial Development Zones” (Shanghai Municipal Government Regulation [2021] No. 9).

II. General Considerations of the “Implementation Opinions”

1. Highlighting Distinctive Features: Focusing on the “High” and “New” Dimensions. First, regarding the “High” dimension, the “Implementation Opinions” emphasize strategic planning from a high vantage point, construction to high standards, and economic efficiency. From the perspective of the overall national strategy, systematic planning and holistic layout are carried out, with industries and enterprises at the core and the high-quality development of the zones as the goal, proposing specific measures.Second, regarding “novelty,” the Implementation Opinions emphasize breakthroughs in new technologies, the creation of new industrial clusters, and the exploration of new mechanisms. Aligning with the requirements for building Shanghai’s science and technology innovation center, the document proposes measures to enhance innovation capabilities. Building upon the accelerated development of three world-class industrial clusters—integrated circuits, biopharmaceuticals, and artificial intelligence—it further proposes the creation of distinctive industrial clusters that lead the nation in fields such as the digital economy and green, low-carbon development.

2. Leverage strengths and fully utilize various policy and institutional innovation resources. First, the Implementation Opinions adhere to a “dual-drive” approach of scientific and technological innovation and institutional innovation. By seizing national strategic opportunities—such as central government support for high-level reform and opening-up in Pudong and the construction of national laboratories—the document promotes the concentrated implementation, pioneering breakthroughs, and systematic integration of comprehensive reform and innovation measures, further stimulating creativity and potential across society.

3. Strengthen management and ensure meticulous planning, construction, and coordinated development of industrial parks. First, the Implementation Opinions require all districts to take the initiative and strengthen the coordination of industrial park planning and construction, industrial development, and the allocation of innovation resources.Second, the Zhangjiang High-Tech Park and the Zizhu High-Tech Park will each draft their 14th Five-Year Plans. The 22 parks within the Zhangjiang High-Tech Park will base their 14th Five-Year Plans on the “14th Five-Year Plan for the Shanghai Zhangjiang High-Tech Industrial Development Zone,” refining specific objectives and tasks to ensure the thorough, in-depth, and detailed implementation of the Implementation Opinions.

3. Main Content of the "Implementation Opinions"

The "Implementation Opinions" consist of six sections and a total of 19 provisions:

Part One clarifies the guiding principles and development goals. It proposes that by 2025, the High-Tech Zone will become the core platform for the city’s high-tech industries and strategic emerging industries, a testing ground for deepening reforms, and the main battleground supporting the construction of Shanghai’s Science and Technology Innovation Center. It aims to take the lead in becoming a national demonstration zone for innovation-driven development and a pioneer in high-quality development, and to basically establish itself as a high-tech park with significant global influence.By 2035, innovation generation will become the primary engine driving high-quality development, with key industries moving to the high end of the global value chain, and the High-Tech Zone will be fully established as a high-tech park with significant global influence.

The second part focuses on enhancing innovation capabilities, including: building major science and technology infrastructure, strengthening basic research capabilities, and attracting high-level talent from home and abroad. It proposes specific measures such as operating and constructing a batch of major science and technology infrastructure projects, accelerating the establishment and operation of national laboratories, and implementing various policies to attract domestic and international talent.

The third part focuses on fostering innovation-driven industrial clusters, including: optimizing industrial spatial layout, enhancing the influence of the three major industries, creating several distinctive industrial clusters, nurturing innovative technology enterprises, and promoting the transfer and commercialization of scientific and technological achievements. Specific measures include accelerating the implementation of the “Shanghai Plan” for the three major industries, accelerating the development of distinctive industries such as the digital economy and green low-carbon sectors, implementing policies conducive to enhancing corporate innovation capabilities, and launching pilot programs related to the commercialization of research outcomes.

The fourth section focuses on intensifying open innovation cooperation, including: serving the Yangtze River Delta integration development strategy and elevating the level of domestic and international scientific and technological innovation cooperation. It proposes specific measures such as leveraging the Yangtze River Delta Branch of the National Medical Products Administration’s Drug Evaluation and Inspection Center, the Yangtze River Delta Branch of the Medical Device Technology Evaluation and Inspection Center, and the Yangtze River Delta National Technology Innovation Center to promote the integration of innovation chains and strengthen international cooperation.

Part Five focuses on creating an environment conducive to high-quality development, including: deepening reforms of management systems and mechanisms; improving the efficiency of land resource allocation; advancing the digital transformation of industrial parks; promoting the green and low-carbon transition of industrial parks; and enhancing the effectiveness of financial services. Specific measures include: deepening the comprehensive innovation reform pilot program; promoting reform and innovation initiatives from Pudong New Area; increasing the floor area ratio and mixed-use proportion of industrial land; advancing the use of digital technology to empower industrial park development; conducting demonstration applications of green and low-carbon innovative technologies; and deepening the “Pujiang Light” initiative.

Part Six focuses on strengthening organizational management, including: reinforcing primary responsibility and implementing dynamic management. It proposes specific measures such as having district governments assume primary responsibility for the construction and management of industrial parks; building innovative, distinctive industrial parks (bases) with unique highlights; improving the industrial park evaluation mechanism; and establishing a dynamic adjustment mechanism for industrial parks.