Regulations of Shanghai Municipality on Development Planning

(Adopted at the 22nd Session of the Standing Committee of the 16th Shanghai Municipal People's Congress on May 28, 2025)

Chapter I  General Provisions

Article 1

With a view to implementing the national development strategy, promoting the establishment of a unified planning system in this Municipality, regulating the formulation of development plans, ensuring their implementation, giving full play to their strategic guiding role, advancing high-quality development in an all-round manner and modernizing the governance system and capacity, these Regulations are formulated in accordance with relevant laws and administrative rules, and in the light of the actual circumstances of this Municipality.

Article 2

These Regulations shall apply to the formulation, implementation, supervision and administration of the development plans of this Municipality and the special plans and regional plans formulated in accordance with them.

Development plans in these Regulations refer to the economic and social development plans of the Municipality and its districts.

Article 3

The formulation, implementation, supervision and administration of development plans shall adhere to the leadership of the Communist Party of China, the guidance of Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, and the people-centered philosophy of development. It involves fully and accurately implementing the new development philosophy in an all-round manner. By focusing on accelerating the development of Shanghai into an international economic, financial, trade, shipping, and scientific and technological innovation center, it aims to strengthen overall planning and strategic layout, expand high-level opening up to the outside world, balance development and security, fully leverage the decisive role of market in resource allocation, better leverage the role of the government, implement the concept of city for the people, foster social equity and justice and enhance public welfare, and thus accelerate Shanghai's development into a modern socialist international metropolis with world influence so that it can play a leading and exemplary role in advancing Chinese-style modernization.

Article 4

The formulation of development plans shall align with the guidelines, policies and strategic arrangements for the economic and social development of the State and this Municipality, reflect the strategic, macro and policy considerations, enhance their guiding and regulatory functions, and promote the principle of whole-process people's democracy, so as to improve the level of scientific rigor, democratic participation, rule of law, and standardized procedures.

This Municipality shall improve the mechanisms for plan coordination, policy alignment, monitoring and evaluation, and oversight to ensure the effective implementation of the plans.

Article 5

The municipal and district people's governments shall strengthen the organizational leadership over planning work, establish a leadership and coordination mechanism for planning, promote the alignment and implementation of plans, coordinate the resolution of major related issues and incorporate the necessary operational funds into the corresponding fiscal budgets.

The development and reform departments shall be responsible for the research, formulation, implementation, and monitoring and evaluation of development plans, as well as for the comprehensive management of specialized and regional plans in accordance with its functional responsibilities. Relevant departments and units shall, within the scope of their respective duties, carry out the research, formulation, implementation, and monitoring and evaluation of specialized and regional plans in an effective and coordinated manner.

The finance, planning and natural resources, statistics and other relevant departments shall, in accordance with their respective functions and duties, provide guarantee in ensuring the formulation and implementation of the plans.

Article 6

This Municipality shall comprehensively utilize modern information technologies such as big data, artificial intelligence, cloud computing, and blockchain to promote the digital application of plan formulation and implementation.

This Municipality shall establish a development planning information system to track and monitor the process of plan formulation and implementation, and promote the interconnection, aggregation and sharing of the basic planning information.

Article 7

This Municipality shall promote the establishment of a planning coordination mechanism with relevant provinces and cities in the Yangtze River Delta region, strengthen information sharing and work coordination in the process of plan formulation and implementation, and enhance joint research on major issues, collaborative advancement of major projects and joint implementation of major policies, so as to drive the high-quality integrated development of the Yangtze River Delta region.

Chapter II  Planning Coordination

Article 8

The development plans of this Municipality shall implement the national development plans and be formulated with the national economic and social development as the focus. These plans shall serve national strategies, clarify the priorities of the government's work, guide and regulate the behavior of business entities, and serve as an important basis for the government to perform its functions of economic regulation, market supervision, social administration, public services, and ecological and environmental protection.

The development plans of this Municipality shall serve as the basis for all other plans at various levels and categories within the Municipality.

Article 9

This Municipality shall improve the system of national economic and social development planning, strengthen the mechanism for the coordination and implementation of the plans, and give full play to the strategic guiding role of the development plans. It shall further strengthen the foundational role of territorial spatial planning, while enhancing the supporting role of special plans and regional plans in implementation. Additionally, it shall strengthen the coordination and integration among various planning frameworks to achieve synergistic planning outcomes.

Article 10

Special plans shall be formulated in accordance with the development plan, focusing on specific fields of national economic and social development. These plans are required to further detail and implement the major indicators, key tasks, significant projects, and important policies explicitly outlined in the development plan within the respective fields.

Article 11

Regional plans shall be formulated in alignment with the development plan, focusing on key areas designated in the development plan, contiguous regions across administrative boundaries characterized by strong economic and social linkages, and designated zones entrusted with major strategic missions. Such plans are required to further detail and implement the major indicators, key tasks, significant projects, and important policies explicitly prescribed in the development plan for these specific regions.

Article 12

The formulation and implementation of territorial spatial plans shall be coordinated with development plans to ensure spatial support for the effective execution of the development plan, while providing authoritative guidance, binding constraints, and foundational support for spatial development and conservation activities outlined in special and regional plans.

Chapter III  Plan Formulation

Article 13

Development plans shall be organized and formulated by the municipal and district people's governments based on the recommendations of the Party committees at the corresponding levels regarding the formulation of development plans. The development and reform departments shall undertake the specific formulation work jointly with other relevant departments.

Special plans shall be drawn up by the competent departments for specific industries or the relevant units in accordance with their duties.

Regional plans shall be formulated by units designated by the municipal and district people's governments and regional administrative agencies in accordance with their respective responsibilities.

Article 14

Development plans shall include the following main contents:

1. the development basis and development environment;

2. the guidelines;

3. the development goals and the indicator system;

4. the spatial arrangement for major strategies and major measures, the strategic spatial pattern, the optimization direction of the spatial structure, and the layout of major productive forces;

5. the major tasks, major projects and major policies; and

6. the guarantee measures for plan implementation.

Special plans and regional plans shall be formulated in accordance with their compilation norms, which shall be formulated by the municipal development and reform department.

Article 15

The planning periods of development plans shall be five years, with planning goals that may extend beyond ten years. The planning periods of special plans or regional plans shall be consistent with those of development plans.

Article 16

The formulation of development plans, special plans and regional plans shall adhere to the laws of nature, economy, and social development. These plans shall integrate domestic and international perspectives, combine goal-oriented and problem-oriented approaches, align medium- and long-term goals with short-term objectives, balance comprehensive coverage and focal priorities, integrate strategic vision with operational feasibility, and ensure the rational matching of resource inputs and performance outcomes.

Article 17

The initiation of special plan and regional plan formulation in this Municipality shall be subject to a catalog-based management system.

Prior to initiating the formulation of any special plan or regional plan, the relevant departments shall submit an initiation application to the development and reform department at the same level. The development and reform department shall coordinate and propose a catalog list of plans for formulation, which shall be submitted to the people's government at the corresponding level for approval to finalize the catalog list.

Special plans and regional plans that are not included in the catalog list shall not be formulated, except when required by the relevant higher-level departments or the people's government at the corresponding level. If formulation is required by the relevant higher-level departments or the people's government at the corresponding level, the department responsible for plan formulation shall submit the formulation plan to the development and reform department at the same level for record-filing.

Article 18

The department responsible for plan formulation shall conduct preliminary research, thoroughly examining significant issues that are strategic, forward-looking, critical, and deeply rooted in development processes. It is essential to scientifically assess the developmental environment and future trends, accurately identify the characteristics and direction of different stage, formulate targeted solutions, and establish the foundational framework of the plan.

After being reviewed by the people's government at the corresponding level, the foundational framework of the development plan shall be submitted to the same-level Party committee for reference in formulating recommendations on the development plan. Similarly, the basic frameworks of special plans and regional plans shall be submitted to the same-level development and reform department.

Article 19

The department responsible for plan formulation shall strengthen the measurement and integrated planning of key resource elements, including population, land, sea areas, and energy, strengthen the performance management of cost budgeting, and balance the input costs of elements and the economic, social and ecological benefits.

Article 20

When formulating development plans, opinions shall be solicited from the relevant specialized committees and the relevant working bodies of the standing committee of the people's congress at the corresponding level, the relevant specialized committees of the same-level political consultative conference, the same-level relevant departments and units, and the people's government at the next lower level. When special plans or regional plans are formulated, opinions shall be solicited from the same-level relevant departments and units and the people's government at the next lower level.

Article 21

When formulating development plans, special plans, and regional plans, it is essential to strengthen the mechanism for public participation. The department responsible for plan formulation shall openly solicit suggestions from the public, and extensively gather opinions from the people and all sectors of society through various channels and methods such as field visits, symposia and questionnaires.

The department responsible for plan formulation shall thoroughly study and actively adopt the opinions put forward by all parties.

Article 22

When formulating development plans, special plans, and regional plans, it is essential to establish a robust expert consultation and evaluation mechanism. The department responsible for plan formulation shall invite experts from relevant fields to assess the scientificity, rationality and feasibility of the contents of the plans and prepare a formal evaluation report.

Experts shall independently carry out consultation and evaluation, put forward opinions on consultation and demonstration in an objective, fair, scientific and rigorous manner, and shall be obliged to keep confidential the state secrets and work secrets they have learned in the consultation and demonstration in accordance with law.

Article 23

Before a draft development plan is submitted to the people's government at the corresponding level for deliberation, it shall be reported to and reviewed by the higher-level development and reform department for coordination. The draft special plan or regional plan shall be coordinated with the relevant plans of both the higher and the same levels, and before approval, shall be reviewed by the same-level development and reform department for coordination with the development plan. When they are submitted for coordination review, explanatory notes on the draft compilation, expert evaluation report, and other relevant materials shall be submitted therewith.

The municipal and district development and reform departments shall conduct the coordination review focusing on the development strategies, target indicators, major tasks, major projects and major policies, and issue an opinion on coordination review within 30 working days. The departments responsible for plan formulation shall revise the plans in accordance with the opinion on coordination review.

Article 24

The draft development plan shall be submitted to the Party committee and the corresponding level of the people's government for deliberation. Subsequently, the people's government shall, in accordance with established procedures, submit the plan to the people's congress at the same level for review and approval. This submission shall be accompanied by explanatory notes on the drafting process, a final evaluation report detailing the implementation outcomes of the previous planning period, as well as any other required supporting materials.

Prior to the formal submission to the people's congress for review and approval, the development and reform department shall, as required, send the draft development plan and relevant materials to the financial and economic committee of the people's congress at the corresponding level for preliminary review.

Special plans and regional plans included in the catalog list of plans for formulation shall have their draft proposals submitted to the people's government at the corresponding level for approval. Where such plans require approval from relevant national authorities, the approval procedures shall be conducted in accordance with applicable provisions.

For special plans or regional plans that have been filed in accordance with Paragraph 3 of Article 17 of these Regulations, the drafts shall be submitted for approval in accordance with the requirements of the higher-level department or the people's government at the corresponding level. For special plans or regional plans jointly formulated by this Municipality and relevant national departments, their drafts shall be submitted for approval in accordance with the relevant national provisions. All approved special plans and regional plans shall be made public within 20 working days after approval, and timely publicity and interpretation thereof shall be conducted, unless otherwise prescribed by laws, rules or regulations or in cases involving state secrets.

Article 25

The development and reform department shall complete the filing procedure with the corresponding higher-level development and reform department within 20 working days after the approval of the development plan. Where the State has other provisions, such provisions shall prevail.

The departments responsible for formulating special plans or regional plans shall similarly complete the filing process with the same-level development and reform departments within 20 working days after the approval of such plans.

Chapter IV  Plan Implementation

Article 26

The municipal and district people's governments are responsible for organizing the implementation of development plans. The development and reform department shall, jointly with relevant departments and units, draft the implementation schemes of the development plans, which shall then be submitted to the same-level people's government for approval before implementation. Relevant departments and units shall, in accordance with the development plans and the approved implementation schemes, define specific work arrangements and advancement measures.

The departments responsible for formulating special plans and regional plans shall be responsible for organizing their implementation, defining the division of responsibilities, specific work arrangements, and advancement measures.

Article 27

The development and reform department shall formulate annual plans for national economic and social development, implement the development goals, major tasks, major projects and major policies outlined in the development plans, break down and incorporate the main indicators determined by the development plans into the annual indicator system, set annual targets, make comprehensive balance of work between years, and reasonably determine the annual priorities of work.

The annual plan for national economic and social development shall be submitted to the people's congress at the corresponding level for review and approval in accordance with procedures, and shall be implemented upon approval. The municipal and district people's governments shall submit formal reports to the people's congress and its standing committee at the corresponding level regarding the implementation of the annual plan for national economic and social development in accordance with procedures.

Article 28

The municipal and district people's governments shall, by focusing on the implementation of development plans, promote coordinated efforts of fiscal, land, employment, financial, industrial and regional policies, to enhance the consistency of macro policy orientation.

The distribution of major productivity and the formulation of public policies concerning natural resources, population, environment and society shall align with the strategic direction, core objectives, and priority measures established in the development plan.

Fiscal resources shall be allocated with priority to major tasks and major projects identified in the development plan.

Article 29

The municipal and district people's governments and the relevant departments shall guide the rational allocation of key resources in a manner and structure that supports the effective implementation of the development plans, and shall prioritize the provision of land, sea areas, energy and other resources required for major projects included in the development plans.

Article 30

The planning formulation department shall carry out dynamic monitoring of the implementation of the plans, analyze key challenges and their underlying causes in the implementation process, and propose corresponding countermeasures. The results of dynamic monitoring shall serve as an important basis for enhancing and improving the implementation of the plan.

Materials related to the dynamic monitoring of development plans shall be submitted to the Financial and Economic Committee of the People's Congress at the corresponding level in accordance with relevant provisions.

Article 31

The municipal and district people's governments shall organize mid-term evaluations of the implementation of development plans, prepare mid-term evaluation reports, and submit them to the Standing Committee of the People's Congress at the corresponding level for deliberation after obtaining the approval of the Party committee at the same level. Based on the deliberation opinions of the said standing committee, they shall report the research and handling results to the Standing Committee of the People's Congress at the corresponding level within a prescribed time limit. The mid-term evaluation reports of district development plans shall be submitted to the municipal development and reform department.

The department responsible for plan formulation shall conduct mid-term evaluations of the implementation of special plans and regional plans, prepare mid-term evaluation reports and submit them to the same-level development and reform department.

The results of the mid-term evaluations shall serve as an important basis for enhancing and improving the implementation of development plans.

Article 32

Before the end of the planning period, the municipal and district people's governments shall organize a final evaluation of the implementation of development plans and prepare a final evaluation report, which, after approval by the same-level Party committee, shall be submitted to the People's Congress at the corresponding level together with the draft development plan for the next planning period to be reviewed and approved. The final evaluation reports of district development plans shall be submitted to the municipal development and reform department.

The department responsible for plan formulation shall conduct final evaluation of the implementation of special plans and regional plans, prepare final evaluation reports, and submit them to the same-level development and reform department. The results of the final evaluations shall serve as a reference for the approval of the plan for the next planning period.

Article 33

When carrying out dynamic monitoring, mid-term evaluation or final evaluation of the implementation of plans, the department responsible for plan formulation may, in accordance with law, entrust professional institutions, social organizations or other third parties to conduct these tasks, and shall extensively solicit opinions from the public.

Article 34

Plans formulated in accordance with law shall not be adjusted without going through prescribed legal procedures.

If adjustments to a development plan are legally necessary during its implementation, the municipal or district people's governments shall propose an adjustment plan, which shall be submitted to the corresponding Party committee at the same level for approval, and be subsequently presented to the standing committee of the people's congress at the same level for review and approval in accordance with relevant provisions. Prior to such submission to the said standing committee, the development and reform department shall send the adjustment plan to the financial and economic committee of the people's congress at the same level for preliminary review in accordance with relevant provisions.

In the case of adjustments to special or regional plans necessitated by changes to the development plan or arising during their implementation, the department responsible for plan formulation shall propose an adjustment plan, and submit it for approval in accordance with the provisions of the Paragraph 2 of Article 24 of these Regulations, and report it to the development and reform department at the same level.

Chapter V  Supervision of Plans

Article 35

The municipal and district people's congresses and their standing committees shall strengthen supervision over the implementation of development plans by means such as hearing and deliberating on special work reports, engaging in inquiries and interpellations, investigating specific issues and conducting thematic research.

The finance and economy committees and other relevant special committees of the municipal and district people's congresses shall, under the leadership of the people's congresses at their respective levels and their standing committees, effectively carry out supervision over the implementation of development plans and promote their smooth implementation.

Article 36

The supervisory and audit institutions shall supervise the implementation of plans in accordance with law.

Article 37

Any unit or individual may submit opinions and suggestions on important issues in the formulation and implementation of plans to the department responsible for plan formulation or other relevant departments, which shall deal with them in a timely manner.

Article 38

The implementation of development plans shall be taken as an important reference for evaluating the districts' and departments' performance of duties in accordance with law.

Article 39

Where state personnel abuse their authority, neglect their duty, engage in malpractice for personal gain or commit other illegal acts in the formulation and implementation of plans, they shall be held accountable in accordance with law.

Chapter VI  Supplementary Provision

Article 40

These Regulations shall be effective as of July 1, 2025.