Implementation Plan for the National Pilot Zone for Digital Economy New Development (Shanghai)

This Implementation Plan is formulated to thoroughly implement the decisions and plans of the CPC Central Committee and the State Council on building a Digital China, accelerate the development of the National Pilot Zone for Digital Economy New Development in Shanghai, and strive to fully activate the value of data as a factor of production, effectively guide innovation through institutional development, further deepen the integration of the digital and real economies, and achieve remarkable results in the construction of the Pilot Zone by 2028.

I. Deepening the Market-Oriented Allocation of Data Factor

1. Deepening the practice and exploration of foundational data systems. We shall implement the data property rights system, formulate data property rights allocation rules for specific scenarios such as AI development, develop guidance for the application of the data property rights system in the judicial field, and compile typical data dispute cases. We shall explore the price formation mechanism for the authorized operation of public data resources and promote the rational distribution of benefits. We shall conduct research on the improvement of the data benefit-sharing mechanism. (Responsible units: the Municipal Data Bureau, Shanghai No. 2 Intermediate People's Court, the Municipal Bureau of Justice, the Municipal Development and Reform Commission, the Municipal Bureau of Finance, and other relevant departments)

2. Strengthening high-quality public data resource supply. We shall establish a responsibility system for high-quality public data supply, and reinforce data source supply and quality control. We shall, leveraging technologies like blockchain and privacy computing, construct the infrastructure for public data development and utilization, and establish mechanisms for on-chain notarization of key elements and data provenance. We shall explore the use of smart contracts to accelerate the approval efficiency for public data authorization. We shall strive to obtain pilot authorizations from national ministries for Shanghai Municipality to operate public data, and deepen the development of pilot scenarios for authorized operation. (Responsible units: the Municipal Data Bureau, and other relevant departments)

3. Strengthening the development of high-quality datasets. With a focus on key industries such as healthcare and high-end manufacturing, we shall create high-quality datasets, and concentrate on vertical-specific model and intelligent agent innovation applications through new data circulation infrastructure. We shall explore the establishment of open-source communities for high-quality datasets, and build a comprehensive, hub-type, and strategic corpus base to serve the development of large-parameter, multimodal foundation models. (Responsible units: the Municipal Data Bureau, the Municipal Commission of Economy and Informatization, and other relevant departments)

4. Accelerating the integrated application of multi-source data from government, industry, academia, and research. We shall improve the construction and operation mechanism of data innovation laboratories, providing data based on scenarios following the "Small-batch trial, pilot run, and industrial application" pathway, and create a number of benchmark application scenarios in key areas such as finance, healthcare, commerce, transportation, green and low-carbon development, and urban governance. (Responsible units: the Municipal Data Bureau, other relevant departments, and relevant district people's governments)

II. Optimizing the Layout of New-Type Digital Infrastructure

5. Enhancing blockchain network capabilities. We shall consolidate the construction of the National Blockchain Network (Shanghai Hub); strengthen foundational capabilities such as distributed digital identity, privacy computing, and cross-chain services; advance the construction of trusted on-chain data service centers for customs, taxation, maritime affairs, foreign exchange management, etc., connecting key data resources from national ministries to improve sectoral regulatory efficiency. We shall implement the national trusted data space pilot tasks and apply blockchain technology to develop a Shanghai solution. (Responsible units: the Municipal Data Bureau, Office of the Cyberspace Affairs Commission of the CPC Shanghai Municipal Committee, and other relevant departments)

6. Promoting the interconnection of computing power resources. We shall enhance the core capabilities of the Shanghai Computing Power Monitoring and Scheduling Platform and the Yangtze River Delta (Shanghai) Computing Power Interconnection Platform, explore the establishment of an inter-regional computing power resource scheduling mechanism, and promote interconnection and on-demand invocation of computing resources. We shall upgrade and expand intelligent computing infrastructure and deploy high-performance domestically-produced intelligent computing clusters. (Responsible units: the Municipal Data Bureau, the Municipal Development and Reform Commission, the Municipal Commission of Economy and Informatization, and the Municipal Communications Administration)

7. Accelerating the construction of multi-dimensional sensing IoT infrastructure. We shall accelerate the construction of the Qianfan Constellation and promote commercial pilot projects for satellite internet services. We shall conduct commercial trials for satellite IoT services, support the integration of public and commercial data resources in the shipping industry, empower market-oriented vessel data service platforms and promote the application of vessel data in more scenarios. We shall advance the construction of comprehensive infrastructure like Shanghai's Low-Altitude Intelligent Connected System and the improvement of related standards, and establish an IoT sensing system for civil unmanned aircrafts. (Responsible units: the Municipal Commission of Economy and Informatization, the Municipal Communications Administration, the Municipal Transport Commission, the Municipal Development and Reform Commission, and the Municipal Data Bureau)

8. Strengthening the construction of a multi-dimensional security protection system. We shall leverage "Intelligent Agents + Smart Contracts" and take the lead in establishing a full-process data security management mechanism covering risk identification, dynamic monitoring, and emergency response in areas such as health and financial services. We shall strengthen data classification and grading, and the protection of important data, expand the scope of data security risk assessment, build a robust foundation for government data security infrastructure, and comprehensively enhance the security governance of the government software supply chain. We shall construct an AI security testing range with large-scale simulation capabilities and an integrated security protection platform. (Responsible units: Office of the Cyberspace Affairs Commission of the CPC Shanghai Municipal Committee, the Municipal Data Bureau, the Municipal Communications Administration, and the Municipal Commission of Economy and Informatization)

III. Strengthening Innovation in Key and Core Technologies

9. Conducting R&D on data technology. We shall accelerate R&D on blockchain technologies such as super-heterogeneous integration chips, homomorphic encryption, hierarchical multi-chain, and cross-chain collaboration, to establish a new-generation technology system and standards for open permissioned blockchain. We shall speed up research on blockchain analysis technologies such as privacy transaction protocols, confidential smart contracts, and penetration supervision under anonymity. We shall strengthen technical breakthrough in intelligent annotation, data fabric, integrated storage and computing, and multimodal data synthesis. (Responsible units: the Municipal Data Bureau, and the Municipal Commission of Science and Technology)

10. Conducting R&D on intelligent technologies. We shall accelerate R&D on next-generation artificial general intelligence, intelligent software, and intelligent computing systems, promote scientific AI systematically, implement the "Hundred Teams, Hundred Projects" initiative, and incubate innovative enterprises. We shall drive breakthroughs in collaborative reasoning technology between general-purpose scientific large models and domain-specific models, and strengthen research on technologies such as structured representation of scientific data, scientific data governance toolchains, and scientific experiment intelligent agents. (Responsible units: the Municipal Commission of Economy and Informatization, the Municipal Commission of Science and Technology, and the Municipal Development and Reform Commission)

11. Exploring frontier technologies. We shall accelerate application pilots and productization of technologies like brain-computer interfaces, sixth-generation mobile communications (6G), and quantum computing, and build common technology R&D service platforms. We shall conduct research on innovation testing ground mechanisms for the third-generation internet (Web3.0), explore building a trusted technology foundation based on smart contracts, and carry out technology verification in an orderly manner. (Responsible units: the Municipal Commission of Science and Technology, the Municipal Commission of Economy and Informatization, the Municipal Communications Administration, and the Municipal Data Bureau)

12. Building digital technology innovation platforms. We shall carry out the construction of data innovation platforms in areas such as embodied AI, autonomous driving, and scientific research, encourage leading entities in the data field to build a number of local data technology innovation platforms with functions like proof-of-concept and pilot-scale testing, cultivate 2-3 high-quality incubators in the data technology field. (Responsible units: the Municipal Commission of Economy and Informatization, the Municipal Commission of Science and Technology, and the Municipal Data Bureau)

IV. Empowering the Construction of the "Five Centers" Through Digital-Real Economy Integration

13. Systematically advancing the expansion, quality improvement, and volume growth of digitalization in shipping and trade. We shall build a global supply chain digital management platform, develop public service capabilities such as financing credit enhancement, document circulation, intelligent tax rebates, and carbon data services, empowering key scenario development like warehouse receipt pledge financing, and full chain tracking of overseas warehouses for cross-border e-commerce. We shall accelerate the expansion of offshore trade service functions, promote the standardized product of "automatic enjoyment of stamp duty exemption without application for offshore trade, and further expand the application scope of the "Offshore Chain Trust" model based on the document custody box of the International Trade Single Window. We shall improve the bulk commodity trade service system, promote on-chain registration of electronic warehouse receipts across multiple categories of bulk commodities like non-ferrous metals and steel. We shall enhance the service capacity of shipping and logistics, drive the sustained volume growth on the electronic bill of lading platform, and optimize the electronic documents exchange and cargo release services. We shall support the construction of the Shanghai International Trade Single Window, and build it into an international trade document exchange hub. (Responsible units: the Municipal Commission of Commerce, the Municipal Transport Commission, Financial Office of the CPC Shanghai Municipal Committee, the Municipal Tax Service, the Municipal Data Bureau, Lin-gang Special Area Administration, China (Shanghai) Pilot Free Trade Zone Administration, and relevant district people's governments)

14. Advancing digital financial innovation and application. We shall strengthen the application of blockchain infrastructure in cross-border RMB clearing and settlement scenarios, promote data-empowered innovation and upgrading of financial products and service models, achieve full-process on-chain application of electronic letters of credit, and accelerate the construction of an on-chain credit service system to empower financing for SMEs. We shall promote the incorporation of Shanghai's exploration achievements in "Blockchain+AI" empowered financial risk prevention and control into national-level fintech innovation regulatory tools. (Responsible units: Shanghai Head Office of the People's Bank of China, Financial Office of the CPC Shanghai Municipal Committee, Shanghai Municipal Financial Regulatory Bureau, and the Municipal Data Bureau)

15. Accelerating intelligent transformation and digital upgrading of key industries. We shall implement the "AI+Manufacturing" and "5G+Industrial Internet" special initiatives, and support the R&D of industry vertical large models. We shall cultivate and develop new service industry models driven by data factor and artificial intelligence, support service industries such as strategic consulting, industry analysis, index publishing, and asset valuation in strengthening the application of data factor and digital technologies, transforming static data resources into dynamic value-added services. (Responsible units: the Municipal Commission of Economy and Informatization, the Municipal Data Bureau, and the Municipal Communications Administration)

16. Promoting data-driven innovation in research paradigms. We shall establish a hierarchical and categorized scientific data sharing management and value assessment mechanism, promote the aggregation of massive heterogeneous data resources from industry, academia, and research by major scientific and technological infrastructures, and incorporate scientific data management into evaluation and reward standards. We shall build 3-5 municipal-level scientific data centers, and support key research institutions in deploying and developing scientific AI platform toolchains and related scientific datasets, promote the aggregation of research data and build high-quality scientific AI datasets. (Responsible units:  the Municipal Commission of Science and Technology, the Municipal Data Bureau, and the Municipal Commission of Economy and Informatization)

17. Promoting intelligent government affairs to empower megacity governance. We shall strengthen the common support capabilities of the nine unified construction platforms including the Shanghai Digital Intelligence Base Platform, and enhance the intensive and coordinated construction of municipal e-government informatization, deepen the empowerment of intelligent agents for efficient megacity governance, improve the government data sharing and feedback mechanism to better support enterprise services, city operations, and grassroots governance. (Responsible units: the Municipal Data Bureau, and other relevant departments)

V. Cultivating Digital Industry Clusters in a Tiered Manner

18. Innovating the cultivation and service mechanism for data commerce enterprises. We shall utilize intelligent agents to proactively discover, accurately analyze, and intelligently evaluate data commerce enterprises, strengthen scenario opening, on-demand services, and policy matching, and cultivate 50 benchmark digital economy enterprises. We shall continuously conduct selection and promotion of outstanding products from data commerce enterprises, implement the "first release and trial, first purchase and use" initiative for data products and services, and cultivate various types of data circulation service organizations. We shall leverage matchmaking mechanisms of competition, exhibition, forum and the regular service mechanism of digital public service centers to deepen resource matchmaking, supply-demand connectivity, and industry-investment bridging. (Responsible units: the Municipal Data Bureau, and all district people's governments)

19. Cultivating industrially carriers with a tiered layout. With a focus on industrial directions such as data, blockchain, and artificial intelligence, we shall collaboratively build innovation-led digital industry clusters in the Yangtze River Delta region, and create several regional pillar-type and specialty digital industry clusters. We shall support Pudong New Area in focusing on pioneering and piloting foundational data systems, Xuhui district in blockchain and AI technology synergy, Yangpu district in empowering platform enterprises with data application, and Putuo district in data industry linkage along the Shanghai-Nanjing corridor, to implement national pilot tasks for data industry agglomeration zones. We shall support Huangpu district, Jing'an district, Changning district, Baoshan district, Minhang district, Jiading district, etc., in promoting the agglomeration and development of characteristic data industries. (Responsible units: relevant district people's governments, the Municipal Data Bureau, and the Municipal Commission of Economy and Informatization)

20. Formulating data industry development policies. We shall support the high-quality development of the data industry by promoting the practice of foundational systems, scenario opening, cultivation of data commerce enterprises, data technology innovation, and industrial layout guidance, encourage relevant districts to formulate supporting policies based on local conditions. (Responsible units: the Municipal Data Bureau, and relevant district people's governments)

21. Planning and implementing a set of major projects. We shall concentrate efforts on areas such as comprehensive logistics hub platforms, maritime shipping spatiotemporal data base, development, utilization, and trusted circulation demonstration applications of healthcare data, and industrial high-quality datasets, organize the layout of a number of major projects, strive to have them included in national-level support programs such as the "Two Major" initiatives. (Responsible units: the Municipal Data Bureau, and the Municipal Development and Reform Commission)

VI. Expanding High-Level Opening-Up and Cooperation

22. Deepening regional cooperation mechanisms for the digital economy. Relying on the Shipping and Trade Digitalization Cooperation and Innovation Alliance, we shall facilitate the expansion of key shipping and trade digitalization scenarios to Yangtze River Delta cities such as Hefei, Zhoushan, and Suzhou. Relying on the Yangtze River Delta Data Cooperation Mechanism, we shall accelerate the construction of an integrated data market, and promote mutual recognition of data commerce enterprises and interoperability of rules and standards. Based on the Yangtze River Delta Regional Science and Technology Joint Research Cooperation Mechanism, we shall deepen the synergy between innovation and industrial chains, and jointly build highlands for the integrated development of industries such as artificial intelligence and integrated circuits. (Responsible units: the Municipal Data Bureau, the Municipal Development and Reform Commission, the Municipal Commission of Economy and Informatization, and the Municipal Commission of Science and Technology)

23. Further advancing institutional opening-up. We shall orderly expand pilot programs to open up value-added telecommunications services, and study the feasibility of multiple entities participating in the construction of national communication submarine cables. We shall innovate the "negative list + operational guidelines" management model for cross-border data, and promote the expansion of the application scope of the outbound data transfer negative list to the entire area of Shanghai. Centering on the issued operational guidelines for outbound data transfer, we shall guide enterprises in conducting data compliance work prior to overseas expansion. (Responsible units: Office of the Cyberspace Affairs Commission of the CPC Shanghai Municipal Committee, the Municipal Communications Administration, the Municipal Commission of Economy and Informatization, and the Municipal Data Bureau)

24. Expanding international digital economy cooperation. We shall benchmark against international digital economy rules, deepen cooperation between Shanghai-Hong Kong and Shanghai-Singapore in areas such as digital identity authentication, data factor markets, and cross-border government service provision. Leveraging platforms like the World Artificial Intelligence Conference and the Global Data Commerce Conference, we shall strengthen international cooperation in the digital economy, build a digital overseas expansion service platform, create a "one-network" integrated "going global" digital service system and an overseas digital marketplace to enhance enterprises' capabilities for global expansion. (Responsible units: the Municipal Data Bureau, the Municipal Commission of Commerce, Office of the Cyberspace Affairs Commission of the CPC Shanghai Municipal Committee, and the Municipal Commission of Economy and Informatization)

25. Constructing high-Level Lin-gang international data economy industrial park. We shall support the Lin-gang Special Area in accelerating the building of an international data processing hub and fostering new international data trade models such as "inbound data processing". We shall initiate the construction of an international data comprehensive service and supervision platform, optimize the layout of cross-border data infrastructure, and improve the convenience of cross-border data transfer for outbound enterprises within the area. (Responsible units: Lin-gang Special Area Administration, the Municipal Commission of Commerce, the Municipal Data Bureau, and Office of the Cyberspace Affairs Commission of the CPC Shanghai Municipal Committee)

VII. Strengthening Talent and Institutional Support

26. Strengthening overall coordination. Relying on the Municipal Leading Group for Data Development and Management, we shall strengthen the coordination and collaboration among government departments, between the municipality and districts, between government and enterprises, among industry, academia, and research institutes, and enhance the overall coordination in the implementation of the Pilot Zone construction. (Responsible units: the Municipal Data Bureau, all relevant departments, and all district people's governments)

27. Strengthening the introduction and cultivation of digital talent. Relying on relevant universities in Shanghai, we shall establish blockchain colleges to create a new model for talent cultivation, integrating industry and education in blockchain. We shall promote the independent evaluation of professional titles in key AI research institutions, and advance the implementation of a joint cultivation model involving government, industry, academia, research and application. We shall make good use of the relevant talent policies of our Municipality and step up efforts to attract overseas high-level talents. (Responsible units: the Municipal Commission of Education, the Municipal Bureau of Human Resources and Social Security, the Municipal Talent Bureau, and the Municipal Data Bureau)

28. Improving the legal safeguard. We shall amend the Provisions of Shanghai Municipality on Promoting the Application of Blockchain in Empowering Electronic Documents in Pudong New Area, focusing on strengthening the effectiveness of electronic documents and deepening the application of electronic documents across multiple scenarios. We shall amend the Regulations of Shanghai Municipality on Data, focusing on promoting the practice of the data property rights system, consolidating the blockchain digital base, and cultivating and developing the data industry. We shall explore special legislation to promote digital economy innovation and development in Pudong New Area. (Responsible units: the Municipal Data Bureau, the Municipal People's Congress Financial and Economic Affairs Committee, the Legislative Affairs Commission of the Municipal People's Congress Standing Committee, the Municipal Bureau of Justice, and Pudong New Area People's Government)

29. Strengthening standard development. We shall support the formulation of standards related to blockchain letters of credit, cross-border mutual recognition of digital identity, and high-quality datasets. We shall support relevant entities in Shanghai to deeply participate in the development and application of national standards such as public data authorized operation, as well as international rules such as digital trade. (Responsible units: the Municipal Data Bureau, and the Municipal Administration for Market Regulation)

30. Carrying out monitoring and evaluation. We shall conduct research on data assets accounting, primarily comprising data products and services, and explore ways to incorporate data assets into the investment scope of construction projects. We shall implement the digital economy statistical monitoring system, pilot full-scope statistics for the digital economy, and research and publish digital economy-related indices. (Responsible units: the Municipal Data Bureau, the Municipal Bureau of Statistics, and the Municipal Development and Reform Commission)