• Area of Law： Statistics
• Level of Authority： Group Provisions
• Date issued：08-28-2015
• Effective Date：08-28-2015
• Status： Effective
• Issuing Authority： General Office of the Central Committee of the Communist Party of China (General Office, CCCPC) General Office of the State Council

Notice of the General Office of the CPC Central Committee and the General Office of the State Council on Issuing the Overall Plan for Promoting Pilot Programs of Comprehensive Innovation and Reform in Some Regions Issued by the General Office of the CPC Central Committee and the General Office of the State Council
(No.48 (2015))




August 28, 2015
Overall Plan for Promoting Pilot Programs of Comprehensive Innovation and Reform in Some Regions Issued by the General Office of the CPC Central Committee and the General Office of the State Council

To promote the comprehensive innovation and reform in a systematic manner is the key to resolving restrictions of bottlenecks in the innovation-driven development. Facing new situations and new tasks, we must further free our minds, make bold explorations and practice, and realize key breakthroughs. In order to maximize the exemplary and leading roles of some regions in reform and innovation, this Plan is hereby made.

I. General Requirements
1. Guiding Ideology
By fully implementing the spirit of the 18th National Congress of the Communist Party of China (“CPC”) and the Second, Third, and Fourth Plenary Sessions of the 18th CPC Central Committee, thoroughly studying and implementing the spirit of a series of important speeches delivered by the General Secretary Xi Jinping, in accordance with the decision-making deployments of the CPC Central Committee and the State Council, with the aim of realizing the transformation of innovation-driven development, the core of promoting science and technology innovation, and the main directions of getting rid of institutional obstacles, some regions are selected to carry out pilot reform programs in a systematic, integrated, and collaborative matter, promote in an overall manner reforms in the fields of economy, society, and science and technology, innovations in science and technology, management, brand, organization, and business model, innovations in civil-military integration, and cooperative innovations in “attracting foreign investment” and “going out,” explore the creation of a policy and institutional environment for promoting business startups and technological innovation by the general public, improve the efficiency and effectiveness of labor, information, knowledge, technology, management, and capital, further promote the development of the productive forces, accelerate the formation of China's new engine for the economic and social development, and provide strong support for the building of an innovative country.
2=. Basic Principles
-Being problem-oriented and sticking to development. The resolution of prominent contradictions and problems restricting the innovation-driven development shall be treated as the starting point and foothold, breakthrough points in the reform shall be identified, resources and forces shall be centralized, channels through which technologies are transformed into practical productive forces shall be opened up, new growth points shall be created, and the transformation of economic development patterns shall be accelerated.
-Conducting systematic design and making an overall layout. Taking the lead in realizing the innovation-driven development shall serve as the ultimate objective and by centering on national regional development strategies, the top-level design shall be strengthened, pilot zones shall be identified, the reform deployments of the Central Committee and the local reform needs shall be planned in an overall manner, decomposed on a yearly basis, and promoted in a rolling-ahead manner, and the duplication and popularization of major measures shall be accelerated.
-Conducting innovations in an all-round manner and making breakthroughs in key points. The science and technology innovation and institutional innovation shall serve as dual tasks, with the core of science and technology innovation, reforms in economy, science and technology, education, and other relevant fields shall be promoted in an all-round manner; priorities shall be given to work connections, important measures that are the most urgent, influential, and realizable shall be highlighted, pilot programs shall be boldly carried out, and a good ecological and policy environment for innovation-driven development shall be created.
-Intensifying the incentive system and adhering to talent first. Motivating the enthusiasm of innovators shall be put in a preferential position in various reform policies, minds shall be freed, mechanisms shall be improved, scientific and technical personnel shall be given reasonable economic interest return and honorary encouragement, the patterns of talent training, utilization, and introduction shall be innovated in, and the innovation vitality of the whole society shall be fully inspired.
3. Major Objectives
After three years' efforts, the pilot reform zones are to basically establish a long-term mechanism promoting the innovation and reform in an all-round manner, a group of major reform breakthroughs are to be made in terms of fair competition in the market, intellectual property rights, transformation of scientific and technological achievements, financial innovation, talent training and motivation, opening-up and innovation, and scientific and technological management system; and a group of reform measures and major policies are to be duplicated and popularized nationwide on a yearly basis so as to form some regional reform and innovation platforms playing an exemplary and leading role, and the environment for innovation is to be more optimizing. Some regions are to take the lead in making substantive progress in the transformation of innovation-driven development, in which the level of scientific-technological inputs is to be further improved, both the quality and effectiveness of intellectual property rights are to be improved significantly, the transformation of scientific and technological achievements are to be accelerated obviously, the innovation capabilities are to be enhanced substantially, the industrial development is to march towards the medium and high levels, the proportion of industries with intensive intellectual property rights is to be increased greatly; a group of innovation-oriented enterprises and industrial clusters with international influences and ownership of intellectual property rights are to be formed, new growth points are to be cultivated and new growth poles are to be developed, so as to form new growth zones; the economic growth is to rely more on the quality of human capital and the scientific and technological progress, the productivity ratio and resource allocation efficiency are to be improved significantly, and the development pattern is to be gradually transformed from extensive growth in terms of scale and speed to intensive growth in terms of quality and efficiency. Such regions are to take the lead, play an exemplary role, and mobilize the whole country to accelerate the implementation of innovation-driven development, so as to form new driving forces for the sustainable economic and social development.
II. Major Tasks
Priorities of the pilot reform programs shall be given to the promotion and implementation of the relevant deployments in the Several Opinions of the CPC Central Committee and the State Council on Deepening the Reform of Systems and Mechanisms to Accelerate the Implementation of Innovation-driven Development Strategies and the Opinions of the CPC Central Committee and the State Council on Deepening Technology System Reform and Accelerating National Innovative System Development, the overall planning of the industry chain, innovation chain, capital chain, and policy chain, and the full empowerment to departments and localities. The pilot reform tasks shall be set at three levels: first, reform measures of which the specific direction has been defined and the implementation is required; second, reform measures of which the fundamental direction has been defined, but the pilot program carried out by the locality empowered by the Central Committee is required due to great risks of comprehensive launch of such measures; third, relevant reform measures that are being explored, require local experiments and popularization although some experience has been gained as well as relevant reform measures that are independently put forwards by localities within the scope of their rights to handle affairs and are of reference significance to other regions. At present, priorities of the pilot reform programs shall be given to prominent problems faced in the implementation of innovation-driven development, and efforts shall be made to carry out reform explorations mainly from the following four aspects: properly handling the relationship between governments and the market, promoting the integration of science and technology and economy, inspiring innovators' motivation and vitality, and deepening the opening-up and innovation.
1. Exploring an effective mechanism for maximizing the roles of both the market and governments
The boundary between the market and governments shall be further defined and the functional positioning of the market and governments in promoting innovation shall be clarified. The deciding role of the market in the allocation of innovation resources shall be brought into play to the maximum extent, reforms of intellectual property rights, market access, and financial innovation shall be accelerated, a market-oriented mechanism for technology innovation shall be established, factor prices shall be promoted to force innovation, a strict system for the protection of intellectual property right protections shall be implemented, and a good market environment for fair competition shall be created. The roles of governments shall be brought into a better play, the transformation of government functions shall be accelerated, the administrative intervention into the market shall be further reduced, the government's innovation management system and policy support system shall be established and improved; researches shall be conducted to establish evaluation indicators for innovation-driven development integrating science and technology innovation, intellectual property rights, and industrial development, the overall planning and coordination of innovation policies and corresponding policies shall be intensified; the civil-military integration and development shall be promoted, and the formation of an innovative management system with clear functions, positive actions, effective coordination, and long-term effectiveness shall be accelerated.
2. Exploring effective approaches for promoting the closer integration of science and technology and economy
The passageway between science and technology innovation and economic development shall be further opened up. Collaboration between innovation in system and mechanism and innovation in science and technology shall be strengthened. Efforts shall be made to change the separation of science and technology and market and accelerate reforms of scientific research institutions and institutions of higher education. Under the principles of following the law, intensifying motivation, conducting rational division of labor, and making classified reforms, the reform of scientific research institutions shall be accelerated, the de-administration of scientific research institutions shall be explored, and new socialized R&D and service institutions shall be developed. The reform of the higher education system shall be deepened and effective models for cultivating new talent shall be explored. The capitalization and industrialization of scientific and technological achievements shall be accelerated and the supporting and leading roles of science and technology for the economic and social development shall be strengthened. A technology innovation system with enterprises as main bodies and interconnection of governments, enterprises, universities, research institutions and practical application shall be established, the application and services of intellectual property rights shall be strengthened, the concentration of innovation resources to enterprises shall be promoted, and the inner impetus of enterprises for innovation shall be fully inspired.
3. Exploring effective measures for inspiring innovators' motivation and vitality
The lever of benefit distribution shall be further effectively utilized to make both innovation talent and entrepreneurs earn benefit. An innovative talent team in grand scale and with a spirit of innovation and the courage to assume risks shall be established, reforms in the mobility and motivation mechanisms of talent shall be accelerated, the motivation to innovation talent shall be strengthened, more positive and open policies for introduction of innovation talent shall be implemented, obstacles to the system and mechanism of free mobility of innovation talent shall be broken down, the bi-directional flow between talent from scientific research institutions and institutions of higher education and scientific and technological talent from enterprises shall be enhanced, the mechanism for ownership of intellectual property rights and benefit sharing shall be improved, and a distribution system that fully reflects the value of intellectual work shall be explored, so as to make each person display his or her full talent according to his abilities and make his full achievements.
4. Exploring effective patterns for deepening the opening-up and innovation
Global scientific and technological achievements and high-end talent shall be fully utilized and higher-level international innovative cooperation shall be carried out. The establishment of a deeply integrated mechanism for opening-up and innovation shall be accelerated, the reform in the management system of foreign investment and investment in foreign countries shall be deepened, the opening-up of science and technology programs shall be promoted, more open innovation policies and more flexible cooperation patterns shall be explored, foreign-funded enterprises shall be encouraged to introduce more innovation achievements to realize industrialization in China, the “going-out” of domestic technologies and brands shall be promoted, the channels and scope of international science and technology exchange and cooperation shall be expanded, and China shall take the initiative to integrate into the global innovation system, so as to fully utilize global innovation resources.
III. Layout of Pilot Programs
1. Overall arrangements
By closely centering on the overall deployment of national regional development strategies, a number of regions that have made various innovation achievements, have a good system foundation, go ahead in the transformation, and are capable of making breakthroughs in a short term shall be selected to carry out the systematic, integrated, and cooperative pilot programs of comprehensive innovation and reform. The pilot reform programs shall mainly rely on pilot tasks and adopt methods combining the top-down deployment of tasks and the bottom-up raising of demands, so as to reflect the differentiation. Regions undertaking the pilot reform programs shall meet the following basic requirements: (1) having highly concentrated innovation resources and innovation activities, and good science and technology strength, undertaking multiple projects, and ranking the top in the quantities of research personnel, utility patents, and science and technology theses; (2) entering the window period of innovation-driven transformation in terms of economic development and ranking the top in terms of the productivity ratio, the proportion of intellectual property right-intensive industries, and the intensity of R&D investment; (3) having established or been incorporated into the national independent innovation demonstration zones, national comprehensive supporting reform pilot zones, and pilot free trade zones under the overall state planning and other various state-level reform innovation pilot zones; (4) going ahead in the reform of systems and mechanisms and having rich experience and strong demonstration and driving capabilities; (5) playing an important pillar role in stabilizing growth and adjusting structure; and (6) attaching importance to the protection of intellectual property rights and having good work mechanisms for cracking down on infringement and counterfeiting and sound institutions.
The selection of pilot zones shall be effectively linked up with the work relating to existing national independent innovation demonstration zones, national comprehensive supporting reform pilot zones, pilot free trade zones, pilot innovative provinces, state-level new districts, trans-provincial urban agglomerations, pilot innovative cities, high-tech industrial development zones, economic and technological development zones, demonstration zones for undertaking industrial transfer, pilot zones for the development of patent and navigation industries, overseas economic and trade cooperative zones, and high technology industry bases. The functional roles and advantages of the relevant departments shall be brought into full play. Under the overall deployment of pilot programs of comprehensive innovation and reform, the relevant departments shall, according to the reform requirements, continue to take the lead in promoting the existing corresponding work and carry out specialized pilot reform programs in light of the local needs.
2. Orderly progressing
In light of regional development priorities in the eastern, middle, western, and north-eastern China and by centering on promoting the coordinated development of Beijing-Tianjin-Hebei, accelerating the innovation and transformation in the core areas of the Yangtze River Delta first, deepening the innovative cooperation among Guangdong, Hong Kong, and Macao, promoting the industrial transfer and adjustment for linking the eastern and western regions, accelerating the deeply integrated civil-military development, and promoting the new industrialization process; one trans-provincial administrative region (Beijing-Tianjin-Hebei), four provincial administrative regions (Shanghai, Guangdong, Anhui, and Sichuan), and three core zones of provincial administrative regions (Wuhan, Xi'an, and Shenyang) shall be selected to conduct systematic deployment, with priorities given to promoting the mutual connection and coordination of reforms in economy, society, science and technology, and other fields and exploring effective mechanisms, patterns, and experience for systematic reforms. In particular, Hebei Province shall carry out pilot programs by relying on Shijiazhuang City, Baoding City, and Langfang City; Guangdong Province shall carry out pilot programs by relying on the Pearl River Delta Zone; Anhui Province shall carry out pilot programs by relying on Hefei City, Wuhu City, and Bengbu City; and Sichuan Province shall carry out pilot programs by relying on Chengdu City, Deyang City, and Mianyang City. After the relevant localities propose the schemes of pilot reform programs, such schemes shall be reported one by one to the State Council for approval according to their maturity before the implementation thereof is initiated.
IV. Organization and Implementation
1. Strengthening organization and leadership
The Leading Group for Reform of the National Science and Technology System and Building of the Innovation System shall strengthen the overall planning and coordination of the pilot work of comprehensive innovation and reform and deliberate on major tasks, layouts, and policy and measure proposals of the relevant pilot reform programs. Under the leadership of the Leading Group for Reform of the National Science and Technology System and Building of the Innovation System, an inter-ministerial coordination mechanism shall be established, in which the National Development and Reform Commission serves as the convener and the Ministry of Science and Technology as the deputy convener. The National Development and Reform Commission and the Ministry of Science and Technology shall, jointly with the relevant departments, provincial governments of regions where the pilot tasks are undertaken, and other component organs, guide the pilot work of comprehensive innovation and reform, deliberate on the pilot reform schemes, coordinate major policy problems in the pilot reform programs in an overall manner, and assess and evaluate the pilot reform work. The regions where the pilot tasks are undertaken shall establish a sound coordination mechanism at the provincial level, be responsible for conducting research and putting forwards pilot reform schemes, promote the implementation of the pilot reform tasks, and cooperate in effectively conducting the evaluation of the pilot reform effects and the popularization and application of achievements.
2. Establishing a policy and measure guarantee mechanism
In accordance with the deployment of pilot reform tasks and the demands thereof, all relevant departments shall proactively research policy measures supporting the pilot reform programs, and effectively conduct the relevant work arrangement and deployment in advance, so as to ensure the smooth progress of the subsequent pilot reform work. Some major reform measures for exploring the pilot programs shall be implemented in pilot zones first. Where the reform measures require the temporary adjustment in the implementation of certain provisions of the relevant laws, administrative regulations, documents of the State Council, and departmental rules approved by the State Council, it shall be handled according to the prescribed procedures. All relevant departments shall proactively innovate in support patterns, strengthen policy coordination, and support and permit trial and error, fault tolerance, and error correction in the pilot reform programs. All relevant departments shall proactively support the participation of central scientific research institutions and institutions of higher education within the pilot zones in the relevant pilot reform programs upon authorization of the competent authorities. The relevant local governments shall properly design pilot reform tasks, pay close attention to the implementation of reform measures, conduct research and formulate corresponding supporting policy measures within their respective scope of functions, properly conduct the linkup and coordination with the relevant departments, and effectively form joint forces.
3. Effectively conducting the work of supervision, evaluation, popularization, and application
The roles of inter-ministerial and provincial coordination mechanisms shall be brought into play. The National Development and Reform Commission and the Ministry of Science and Technology shall, jointly with the relevant departments, organize the annual supervision and inspection on the pilot zones and the third-party evaluation work, identify and resolve problems in a timely manner, and publicize and popularize typical experience. Based on the situations of the annual supervision and inspection on the pilot zones and the third-party evaluation, proposals for popularizing major reform measures by category shall be raised in a timely manner according to the maturity degree. For reform measures that are relatively mature, they shall be popularized in a greater scope upon approval of the State Council.
4. Implementation scheduling
In 2015, Beijing-Tianjin-Hebei, Shanghai, Guangdong, Anhui, Sichuan, Wuhan, Xi'an, and Shenyang shall conduct research and make pilot reform schemes, coordinate in the implementation of the relevant reform measures, specify stage tasks and objectives and after conditions are mature, report item by item to the State Council for approval of the implementation thereof.
In 2016, the reform deployment of pilot zones shall be promoted and implemented in a comprehensive manner, stage summary and evaluation shall be carried out, and mature reform measures shall be popularized nationwide in a timely manner.
After 2017, annual tasks of the pilot reform programs shall be deployed in a rolling manner, mid-term evaluation of pilot zones shall be organized, and major reform measures shall be popularized at appropriate time.
In principle, the pilot reform scheme for a pilot zone shall have a three-year plan and each pilot reform task shall form transferable and replicable experience within one year.
The provincial governments of the relevant zones shall organize the research and formulation of specific pilot reform schemes, put forward major tasks, objectives, timetable, route maps, and policy demands of the pilot reform programs, submit applications to the National Development and Reform Commission and the Ministry of Science and Technology, and forward the same to the relevant departments. The National Development and Reform Commission and the Ministry of Science and Technology shall, jointly with the relevant departments and under the inter-ministerial coordination mechanism, conduct cooperative researches on the pilot reform schemes, put forward pilot proposals and upon deliberation of the Leading Group for Reform of the National Science and Technology System and Building of the Innovation System, report such schemes and proposals to the State Council for approval.
All relevant departments and localities shall, in accordance with the spirit of this Plan, unify thought, closely cooperate with each other, strengthen the awareness of overall situation and responsibility, be courageous to make innovations, take the initiative to reform, make positive actions, pay special attention to the implementation thereof, and ensure that the pilot reform work achieves tangible results. All relevant sides shall, in a timely manner, summarize and publicize the progress and performance of the pilot reform programs, strengthen the social public opinion orientations, and create a good social environment conducive to reforms.