Section 301 Investigation: China's Acts, Policies, and Practices Related to Technology 

Transfer, Intellectual Property, and Innovation - Form to Request Exclusion of Product 

When submitting a product exclusion request using this form, enter the specified 

information in the following fields and explain the basis and rationale for your statements. 

By completing this form, you certify that the information provided is cofi1:plete and 

correct to the best of your knowledge. 

1. Indicate whether the comment contains business confidential information (BCI), is a public 

document, or is a public version of a BCI document. 

!Public Version ofBCI 

2. Please provide a complete and detailed description of the particular product of concern: 

The product is a bladder mold. This bladder mold is made of steel and is in the shape of a cylindrical 

two-piece mold with a solid internal core. The outer diameter of this bladder mold is 35 inches and the 

height is 28.65 inches. Its nominal rim diameter is 20 inches. The bladder mold is used to form rubber 

bladders which are used in tire production. 

3. IO-digit HTSUS item number* for product you wish to address in this product exclusion request: 

*Use numerical characters only with no special characters (example: 1023456789). For help in finding 

the HTSUS item number associated with your product, see https://hts.usitc.gov/ 

8480718060 

4. Requestor Information 

Requestor Name (Last, First): !Damitio, Jeremy 

:========~==============================::::: Organization Name: !Titan International, Inc. 

Note: Representatives submitting on behalf of an organization must enter information below. 

Requestor Representative: !Jennifer M. Smith, Stewaii & Stewart 

5. Requestor's relationship to the product: !~Im~p_o_rt_e_r __________________ ~ 

6. Does this submission in regulations.gov include additional attachments? 

!vEs 

7. Please indicate whether any additional attachment contains business confidential information 

(BCI), is a public document, or is a public version of a BCI document. 

!Public Version ofBCI 

VERSION 2 CONTINUED BELOW 
8. Is this product, or a comparable product, available from sources in the United States? (If you 

indicate "NO", you must provide support for your assertion in Box 12). 

9. Is this product, or a comparable product, available from sources in third countries? (If you 

indicate "NO", you must provide support for your assertion in Box 12). 

10. Please provide the value and quantity (with units) of the Chinese-origin product of concern 

that you purchased for each calendar year specified. Limit this figure to the products 

purchased by your firm ( or by members of your trade association) alone. Please provide 

estimates if precise figures are unavailable. 

2017 Value: [ *** 2017 Quantity: *** 

2016 Value: [ *** 2016 Quantity: [ *** ] 

2015 Value: [ *** 2015 Quantity: [ *** ] 

11. Is the Chinese-origin product of concern sold as a final product or an input used in 

the production of a final product or products? 

INPUT 

a) For imports sold as final products, please provide: 

% of your total gross sales in 2017 that the Chinese-origin product accounted for. 

b) For imports of inputs used in the production of final products, please provide: 

VERSI0N2 

% of the total cost of producing the final product(s) the Chinese-origin input 

accounts for. 

% of your total gross sales in 2017 that sales of the final product(s) incorporating 

the input accounted for. 

CONTINUED BELOW 2 
12. Please provide information in support your request, taking account of the 

instructions provided in Section B of the Federal Register notice. If you 

responded "NO" to Questions 8 or 9, you must provide support for your 

assertion in the box below. (Note: text entered below can extend beyond the 

apparent size of this box). 

Please see attached document. 

VERSI0N2 END 3 
-

CDTITAN 

VIA REGULATIONS.GOV 

The Honorable Robe1i H. Lighthizer 

U.S. Trade Representative 

October 9, 2018 

Office of the U.S. Trade Representative 

600 17111 Street N.W., Room F516 

Washington, D.C. 20006 

Docket No.: USTR-2018-0025 

PUBLIC VERSION 

Business Proprietary Information 

Deleted from Brackets 

Re: Request for Exclusion of Items Classified Under 8480.71.8060, HTSUSfrom 

the Determination of Action Pursuant to Section 301 

Dear Ambassador Lighthizer: 

On behalf of Titan International, Inc. ("Titan"), we respectfully submit this request for 

the exclusion of a bladder mold from the dete1mination of action pursuant to Section 301 of 

the Trade Act of 1974 (19 U.S.C § 2411). We respectfully request proprietary treatment for 

certain information in the submission, which we designate by placing within brackets. We 

certify that disclosure of the bracketed inf01mation would cause substantial harm to the 

competitive position of Titan, endanger its trade secrets and profitability, and would not 

ordinarily be disclosed to the public. A public version of the submission has been prepared 

Titan International, Inc. 

2701 Spruce St. Quincy, IL 62301 

(217) 228-601 1 

titan-inti.com 
Titan Int'!, Inc. - Request for Exclusion.from Section 301 Tariffs 

October ' 9, 2018 

PUBLIC VERSION 

and is being filed simultaneously with this submission per the instructions of the United States 

Trade Representative ("USTR"). 1 

Titan is one of the largest manufacturers of pneumatic off-the-road ("OTR") tires in 

the United States. It is headquartered in Quincy, Illinois and employs about 2,150 people in 

the United States. Titan manufactures tires for use in agriculture, construction, mining, 

forestry, as well as ATV /UTV vehicles. This exclusion request addresses a bladder mold 

imported from China under subheading 8480.71.8060, HTSUS, which is currently subject to 

the additional 25% Section 301 tariffs. 

Please note that a separate form has been submitted for each type of item for which 

Titan requests an exclusion. These items include sidewall plates for various OTR tires, tire 

mold tooling, tire building drums, and bladder molds. A particularized description of each 

item is provided with the request for each item. 

In accordance with the instructions issued by the Office of the USTR, Titan provides 

the following information in response to questions in the form applicable to Section 301 

tariffs exclusion requests. 

1. A Complete and Detailed Description of the Product 

The product is a bladder mold, which is a cylindrical, two-piece mold with a solid 

inside core that acts as a third piece. The outer diameter of the mold is 35 inches and its 

height is 28.65 inches. The mold has a nominal rim diameter of20 inches. It is made of steel 

1 Procedures to Consider Requests for Exclusion of Particular Products from the 

Determination of Action Pursuant to Section 301: China's Acts, Policies, and Practices Related to 

Technology Transfer, Intellectual Property, and Innovation, 83 Fed. Reg. 32,181, 32,183-84 (July l 1, 

2018). 
Titan Int'!, Inc. - Request for Exclusion.from Section 301 Tariffs 

October 9, 2018 

PUBLIC VERSION 

and is classified under subheading 8480.71.8060, HTSUS. The function of bladder molds is 

to form rubber into a rubber bladder. 

2. The Ability of U.S. Customs and Border Protection to Administer the Exclusion 

The description above and the exhibits attached to this application provide sufficient 

information to enable CBP to identify the items and administer the exclusion. However, 

general information as to the means of shipment is also provided as a supplement to the above 

description. The commercial invoice and other documents associated with the shipment 

usually identify the product as a "bladder mold" and may include inspection report(s), 

drawing(s), and/or part number(s) associated with these items. However, such information is 

not consistently provided in shipping documents. 

3. Availability of the Product Outside of China 

There is generally no alternative sourcing outside of China for the bladder mold of the 

physical characteristics described above. Non-Chinese producers simply do not offer various 

items that Titan needs, and where they do, they are available with significantly longer lead 

times and at prohibitively higher prices than Chinese manufacturers. Titan has received no 

quotes or responses from most U.S. manufacturers in inquiries about various products. 

Accordingly, Titan has faced difficulty obtaining the items it needs from U.S. or third-country 

sources because products from such sources are often slower and prohibitively more 

expensive than those of Chinese producers. 

4. Economic Harm to the Requester and other United States Interests 

In light of the above shortfalls in the availability, timing, and price of the items of 

concern, the imposition of a 25% tariff on the bladder mold would severely harm Titan and 
Titan Int'/, Inc. - Request for Exclusion.from Section 301 Tariffe 

October 9, 2018 

PUBLIC VERSION 

significant United States interests. First, the limited availability and high price of such molds 

would require Titan to decrease the number of bladders it can produce and use for tire 

production, therefore reducing its overall production capacity for OTR tires. 

Titan would also suffer significant harm when competing with tire manufacturers 

internationally. In the OTR and industrial tire sectors, Titan faces at least 112 competing 

brands with 192 plants worldwide. In this aggressive environment, additional 25% tariffs will 

subject Titan to costs to which its foreign competitors are not subject because such tariffs 

affect U.S. companies alone. These burdens will exasperate what is already an uneven 

playing field in the tire industry, as evidenced by findings from the United States Department 

of Commerce. The Department of Commerce has found that both Chinese and Indian tire 

producers have received government subsidies and dumped their tires into the United States. 

The United States International Trade Commission has further found that such dumping and 

subsidization has materially injured the U.S. tire industry. Manufacturers from China and 

India make up a large portion of the competition that U.S. manufacturers such as Titan face. 2 

While the Administration is imposing tariffs against imports of Chinese tires, Indian 

producers and producers from other countries remain unaffected and able to harm 

manufacturers such as Titan. Accordingly, Titan already faces serious disadvantages as 

compared to its international competitors. The imposition of tariffs on the bladder mold at 

issue here would only further tilt this uneven playing field. 

Section 301 tariffs on the bladder mold also pose severe harms to the U.S. economy 

and the industrial sector. By raising the cost of such intermediate inputs, Section 301 tariffs 

2 Out of the 192 total tire-manufacturing plants, 73 are located in China or India. 
Titan Int'/, Inc. - Request for Exclusion.from Section 301 Tariffs 

October 9, 2018 

PUBLIC VERSION 

would make it [ 

Currently, Titan employs about 2,150 people in the United States. [ 

5. Strategic Importance to "Made in China 2025" 

]. 

]. 

The bladder mold is neither strategically important nor related to "Made in China 

2025." "Made in China 2025" is a state-led industrial policy that aims to raise China's 

dominance in global high-tech manufacturing. As part of this plan, China has targeted "ten 

strategic advanced..1echnology manufacturing industries for promotion and development: (1) 

advanced information technology; (2) robotics and automated machine tools; (3) aircraft and 

aircraft components; ( 4) maritime vessels and marine engineering equipment; (5) advanced 

rail equipment; ( 6) new energy vehicles; (7) electrical generation and transmission equipment; 

(8) agricultural machinery and equipment; (9) new materials; and (10) pharmaceuticals and 

advanced medical devices.3 This bladder mold do not fall within any of the ten targeted 

industries in the "Made in China 2025" program. 

Accordingly, the imposition of Section 301 tariffs on the limited products outlined in 

this request would have no impact on the outcome of the "Made in China 2025" program 

while harming the American economy and Titan's economic prospects. Exclusion of the 

products in this request from the Section 301 tariffs would avoid this potential harm. 

3 Office of the United States Trade Representative, Executive Office of the President, Findings of 

the Investigation into China's Acts, Policies, and Practices Related to Technology Transfer, 

Intellectual Property, and Innovation Under Section 301 of the Trade Act of 1974 (Mar. 22, 2018) at 

14. 
g

Respectfully submitted, 

Jerem 

Corporate Attorney 

Titan International, Inc. 
Exhibit 1 
Titan International, Inc. 

2701 Spruce St. Quincy, IL 62301 

(217) 228-6011

titan-intl.com

October 9, 2018 

VIA REGULATIONS.GOV 

The Honorable Robert H. Lighthizer 

U.S. Trade Representative 

Office of the U.S. Trade Representative 

600 17th Street N.W., Room F516 

Washington, D.C. 20006 

Docket No.: USTR-2018-0025 

PUBLIC VERSION 

Business Proprietary Treatment 

Requested for Information Has Been 

Deleted in Brackets on Pages 2-3 

Re: Requests for Exclusion of Certain Sidewall Plates, Tooling for Tire Molds, 

Bladder Molds, and Tire Building Drums from Section 301 Tariffs

Dear Ambassador Lighthizer: 

I am the Senior Vice President of Sales for Titan Tire Corporation (“Titan”). I have been with 

Titan for over ten years, and I have overseen the company’s off-the-road tire business both on 

the operations side and the sales side. In this position, I have developed familiarity with the 

tires Titan manufactures, the needs of Titan’s clients, and the market conditions in the 

industries in which those clients operate. In light of this expertise, I am writing this letter in 

support of Titan’s requests for exclusion of certain sidewall plates, tooling for tire molds, 

bladder molds, and tire building drums from the 25% Section 301 tariffs. As outlined below, 

such tariffs would harm not only Titan but various sectors of the United States’ economy. 

Titan is one of the largest manufacturers of new pneumatic off-the-road tires in the United 

States. Tires manufactured by Titan are used in the agricultural, construction, forestry, and 

mining sectors. 

Reductions in Titan’s production capacity are expected to occur as a result of the 25% tariffs 

because Titan will face challenges in sourcing its sidewall plates, mold tooling, tire building 

drums, and bladder molds from sources other than China. Titan’s experience has borne out 

that U.S. and third-country manufacturers often do not offer these items that Titan needs. 

When they do, they do so with significantly longer lead times than Chinese manufacturers and 
Titan Int'!, Inc. - Request for Exclusion from Section 301 Tariffs 

October 9, 2018 

Page2 

PUBLIC VERSION 

at prohibitively high prices. Given the importance of time in the industries in which Titan 

operates, quick delivery is essential to Titan's business. As such, to the extent Titan must face 

the additional 25% tariffs on these items, it would likely have to reduce its production 

capacity, causing negative ripple effects in the industries that rely on its products. 

In the agricultural sector, Titan produces certain types of tires from the sidewall plates that are 

the subject of Titan's exclusion requests. These types of tires include Optitorque and other 

tires that utilize low sidewall ("LSW") technology, which Titan has pioneered. LSW tires 

enable farmers to harvest crops during heavy rains by increasing traction, and reducing road 

lope, power hop, and soil compaction. Because there is a small window of time in which 

farmers must harvest their crops each year, such tires must be readily available when 

harvesting season arrives. This year, because of increased rains, such tires have been in short 

supply. To the extent that the sidewall plates for these tires are subject to the additional 25% 

tariffs, Titan would be forced to reduce the number of its molds, subsequently reducing its 

production capacity for such tires and losing its unique advantage as the pioneer of LSW 

technology. This would then reduce the supply required to meet agricultural demand, which 

would hurt farmers by preventing them from harvesting efficiently and result in costs to 

consumers by way of increased food prices. 

Titan also produces large agricultural Optitrac tires from the sidewall plates and tooling that 

are the subject of Titan's exclusion requests. Certain Optitrac tire sizes [ 

J have been in very short supply. As is the case with other agricultural tires, 

Titan must be able to supply these tires during the harvest season. The additional 25% tariffs 

on the sidewall plates and tooling for these tires would significantly impair Titan's ability to 

supply these tires in a timely manner. 

The additional tariffs will also harm Titan's ability to continue to withstand aggressive 

competition by foreign manufacturers. Titan has lost a significant share of the market for 

[ ] tires to foreign tire manufacturers, especially tires produced by Indian 

manufacturers. The U.S. Department of Commerce has found tires produced by these Indian 

producers to be dumped and/or subsidized by the Indian government, and the U.S. 

International Trade Commission has found that those dumped and/or subsidized Indian tires 

have caused material injury to the U.S. industry. The imposition of the Section 301 tariffs on 

the sidewall plates and tooling necessary for the production of these items will further 

diminish Titan's ability to compete with such producers. 

Additionally, Titan produces [ ] agricultural tires from the sidewall plates that are the 

subject of Titan's exclusion requests. These tires are used on low-horse power tractors, which 

is a growing part of the agricultural tire market. Titan is [ _ 

]. Production of these tires improves Titan's ability to 

[ ]. 

Without access to affordable molds and sidewall plates, Titan will face additional hurdles in 

competing in this segment of the market. 
PUBLIC VERSION 

Titan Int 'l, Inc. - Request for Exclusion from Section 301 Tariffs 

October 9, 2018 

Page3 

Similarly, Titan also produces essential tires for use in the forestry industry. Titan requests an 

exemption for the [ . ] used to produce the [ __ . 

] tire. This tire is utilized in forestry equipment. Demand for this tire has increased given 

the boom in the home-building market. hnposing tariffs on the tooling necessary for the 

production of such tires would reduce their availability in a time of increased demand, 

increasing lumber costs and harming the construction and real estate sectors of the economy. 

Finally, Titan also manufactures numerous tires integral to the infrastructure sector, which has 

been identified as an industry of unique significance to the current Administration. 

Specifically, Titan requests exclusions for mold tooling used to produce its [ 

] tires [ ]. These tires ~quip the.loaders t,hat support 

the rock trucks utilized in the transport of aggregate and rock for projects such as highway 

and road building. The imposition of tariffs on the tooling needed for the production of such 

tires would result m increased costs passed down to construction and infrastructure projects 

throughout the United States. These costs would ultimately slow the progress of such projects 

and the growth ofthese sectors of the economy. 

In light of the above harms,. I respectfully request that the Department exclude the sidewall 

plates, tooling for tire molds, bladder molds, and tire building drums specified in Titan's 

exclusion requests from the 25% tariffs pursuant to Section 301. 

I certify that the above statements are true and accurate to the best of my knowledge. 

I respectfully request proprietary treatment for certain information in the submission, which is 

designated by beir\g placed within brackets. I certify that disclosure of the bracketed 

information would cause substantial harm to the competitive position of Titan, endanger its 

trade secrets and profitability, and would notordinarily be disclosed to the public. 

Respectfully submitted, 

Paul Hawkins 

Senior Vice President of Sales 

Titan Tire Corporation 
Exhibit 2 
Made in China 2025

Charting the 10-Year Transformation of Chinese Industry

Full English translation by IoT ONE, based on the original publication《中国制造 2025》

PRC State Council, July 7, 2015

Accelerating the 

Industrial Internet of Things 
Accelerating the Industrial Internet of Things | www.iotone.com 2

Made in China 2025《中国制造 2025》

Executive Summary

"Made in China 2025" is an initiative to comprehensively upgrade Chinese industry that is 

inspired by Germany's "Industry 4.0" plan. The Chinese effort is broader due to highly 

uneven efficiency and quality of Chinese producers. Multiple challenges must be rapidly 

overcome if China is to avoid being squeezed between emerging low-cost producers and 

advanced economies.

The initial version of the plan addresses ten strategic sectors, nine strategic priorities, nine 

support mechanisms, and twelve key performance indicators. This document should be 

viewed as a high-level roadmap to guide the direction of initiatives by local government and 

state-owned enterprises. As with the Five-Year Plans, it is an important reference point for 

foreign investors and companies seeking to anticipate market trends in China. 

10 Strategic Sectors

New$energy)

Vehicles)&)

Equipment

Maritime)

Equipment)

&)Shipping

Advanced)

IT

Aerospace)&)

Aeronautical

Power)

Equipment

New)

Materials

Agricultural)

Equipment

Automated)

Machines)&)

Robotics

Rail)

Transport

Equipment

Biopharma

&)Medical)

Products

Manufacturing+Innovation+Capability

Integration+of+IT+&+Industry

Fundamental+Industrial+Capabilities

Quality+&+Branding

Green+Production

Breakthroughs+in+Major+Areas

Manufacturing+Structural+Adjustment

ServiceDoriented+Manufacturing++

Manufacturing+Internationalization

9"Strategic"Priorities

Institutional+Mechanism+Reform++

Fair+Market+Environment++

Financial+Support+Policies++

Fiscal+&+Taxation+Policy++

MultiDlevel+Talent+Cultivation+Systems++

SME+Enterprise+Policy++

Manufacturing+Openness+

Organization+&+Implementation+System

State Council+Oversight+&+Support

9"Support"Mechanisms
Accelerating the Industrial Internet of Things | www.iotone.com 3

Charting the 10-Year Transformation of Chinese Industry

Made in China 2025 is unique in scope and scale: it focuses on the entire manufacturing 

process; it promotes the development of both traditional and advanced industries, and; it 

relies heavily on market incentives. Despite its market-orientation, the plan is guided by 

government agencies and supported by well financed projects aimed at increasing R&D 

spending and incentivizing multinational companies to shift R&D resources to China. 

There are quantified targets for manufacturing innovation, quality, upgrades, and green 

production, with goals set for 2020 and 2025 and benchmarks identified for 2013 and 2015. 

Although goals are specifically identified, supporting tactics remain undefined. We expect 

local, regional, and central government agencies to propose supporting initiatives in 2016. 

12 Key Performance Indicators

Category Manufacturing/Transformation/KPI 2015 2025

Innovation/

Capability

1.####R&D#cost#/#revenue##(%) 0.95 1.68

2.####Patents#/#billion#RMB#of#revenue##(#) 0.44 1.10

Quality/&/Value 3.####Manufacturing#quality#competitiveness##(index) 83.5 85.5

4.####Manufacturing#valueLadded#increase#over#2015##(%) L 4

5.####Average#annual#labor#productivity#growth##(%) L 6.5

IT/&/Industry/

Integration/

6.####Broadband#penetration##(%) 50 82

7.####Digital#R&D#and#design#tool#penetration##(%) 58 84

8.####Key#process#control#rate##(%) 33 64

Green/Industry 9.####Energy#decrease#over#2015#/#industrial#value#add##(%) L 34

10.##CO2 decrease#over#2015#/#industrial#value#add##(%) L 40

11.##Water#use#decrease#over#2015#/#industrial#value#add##(%) L 41

12.##Industrial#solid#wastes#utilization#ratio##(%) 65 79
Accelerating the Industrial Internet of Things | www.iotone.com 4

Made in China 2025《中国制造 2025》

Contents

INTRODUCTION

1. SITUATION AND ENVIRONMENT

1.1 Global Manufacturing Faces Significant Adjustment

1.2 China’s Economic Development Roadmap Faces Significant Changes 

1.3 Building a Leading Manufacturing Power is Arduous and Pressing

2. STRATEGIC PRINCIPLES AND GOALS

2.1 Guiding Principles

2.2 Basic Principles

2.3 Strategic Goals

3. STRATEGIC TASKS AND KEY POINTS 

3.1 National Manufacturing Innovation Capability

3.2 Full Integration of Informatization and Industrialization

3.3 Fundamental Industrial Capabilities

3.4 Quality and Branding

3.5 Green Production

3.6 Breakthroughs in Major Areas

3.7 Structural Adjustment in Manufacturing

3.8 Service-oriented Manufacturing and the Product Service Industry

3.9 Internationalization of Manufacturing

4. STRATEGIC SUPPORT AND SUPPLY

4.1 Institutional Mechanism Reform 

4.2 Fair Market Environment 

4.3 Financial Support Policies 

4.4 Fiscal and Taxation Policy 

4.5 Multi-level Talent Cultivation Systems 

4.6 Medium, Small and Micro Enterprise Policy 

4.7 Manufacturing Openness 

4.8 Organization and Implementation System
Accelerating the Industrial Internet of Things | www.iotone.com 5

Charting the 10-Year Transformation of Chinese Industry

Made in China 2025《中国制造 2025》

State Council, July 7, 2015

OVERVIEW

Manufacturing is the main pillar of the national economy, the foundation of the country, tool 

of transformation and basis of prosperity. Since the beginning of industrial civilization in the 

middle of the 18th century, it has been proven repeatedly by the rise and fall of world 

powers that without strong manufacturing, there is no national prosperity. Building 

internationally competitive manufacturing is the only way China can enhance its strength, 

protect state security and become a world power.

Since the founding of New China, and especially following the reform and opening up 

period, China’s manufacturing sector has maintained rapid development and has built an 

industrial system that is both comprehensive and independent. It has greatly supported 

China’s industrialization and modernization and significantly enhanced the country’s overall 

strength. It has supported China’s position as a world power. However, compared with the 

advanced economies, China’s manufacturing sector is large but not strong, with obvious 

gaps in innovation capacity, efficiency of resource utilization, quality of industrial 

infrastructure and degree of digitalization. The task of upgrading and accelerating 

technological development is urgent.

At present, a new wave of technological and industrial revolution is aligning with the 

transformation of China’s economic development and reshaping the structure of the 

international division of labor. China must seize this historic opportunity to implement a 

strategy of reinvigorating Chinese manufacturing and reinforce planning and forward 

deployment in accordance with the requirements of the “Four Comprehensive Points” 

strategic blueprint (a prosperous society, policy reform, rule of law, party discipline). We will 

strive to transform China into the global manufacturing leader before the centennial of the 

founding of New China, which will lay the foundation for the realization of the Chinese 

dream to rejuvenate the Chinese nation.

Made in China 2025 is the guide for China’s manufacturing strategy during the coming 

decade.
Accelerating the Industrial Internet of Things | www.iotone.com 6

Made in China 2025《中国制造 2025》

1. SITUATION AND ENVIRONMENT

1.1 Global Manufacturing Faces Significant Adjustment

The deep integration of next generation IT into manufacturing is triggering far-reaching 

industrial transformation and forming new production methods, industrial patterns, 

business models and economic growth points. All countries are promoting technology 

innovation in 3D printing, mobile Internet, cloud computing, big data, bioengineering, new 

energy resources and new materials. Intelligent manufacturing, such as intelligent 

equipment and plants based on cyber-physical systems, is creating a new manufacture 

revolution. The scope of manufacturing is expanding to include crowd-sourcing, 

collaborative design, mass customization, precise supply chain management, life-cycle 

management across the industrial value chain, wearable devices, and autonomous 

equipment and vehicles. China’s manufacturing sector is facing a great opportunity to 

upgrade, innovate, and transform.

At the same time, global industrial competition is undergoing a significant adjustment that 

presents China with great challenges. After the global financial crisis, developed countries 

implemented ‘Manufacturing Renaissance’ strategies in order to regain advantages in 

manufacturing, and to promote new global trading and investment patterns. Meanwhile, 

developing countries are seeking to expand their share of global industrial labor and are 

investing in industrial capital to develop their export markets. Manufacturing in China is 

facing severe challenges from this “two-way squeeze” between developed and developing 

countries. In order to sustain China’s manufacturing sector, we must have a global view 

and deploy new strategies, so we can turn challenges into opportunities and capture the 

manufacturing high ground in the new competitive landscape.

1.2 China’s Economic Development Roadmap Faces Significant Changes 

With the simultaneous development of new types of industrialization, informatization, 

urbanization, and agricultural modernization, pent up domestic demand is being released 

that will stimulate Chinese manufacturing. Demand will increase across many sectors, from 

industrial equipment, to private consumption, public services, and national defense. This 

new domestic demand requires rapid improvement of manufacturing technologies and 

innovation, improved commodity quality and safety, and upgraded public infrastructure. We 

will comprehensively deepen reform and expand ‘opening up’ to stimulate manufacturing 

innovation in order to transform and upgrade manufacturing capabilities.
Accelerating the Industrial Internet of Things | www.iotone.com 7

Charting the 10-Year Transformation of Chinese Industry

The economy of China has entered a New Normal and Chinese manufacturing is facing 

new challenges. With resource and environmental constraints growing, costs of labor and 

production inputs rising, and investment and export growth slowing, a resource and 

investment intensive development model that is driven by expansion cannot be sustained. 

We must immediately adjust the development structure and raise the quality of 

development. Manufacturing is the engine that will drive the new Chinese economy.

1.3 Building a Leading Manufacturing Power is Arduous and Pressing

After decades of rapid growth, China’s manufacturing scale has become the largest in the 

world. China’s comprehensive and independent manufacturing system has become the 

cornerstone of economic and social development, and is an important force supporting the 

global economy. Continuous technology innovation has greatly improved the overall 

manufacturing competitiveness of China. We have made breakthroughs in launching 

manned spacecraft and deep-sea submersibles, producing aircraft, launching the Beidou 

Navigation Satellite System, developing supercomputers, building high-speed rail, and 

installing ten-thousand meter deep oil drilling equipment. We have formed internationally 

competitive enterprises and laid the foundation to build China into an industrial power.

Nonetheless, China is still in the process of industrialization and there remain gaps 

between China and advanced economies. Chinese manufacturing is large but not yet 

strong. The capability for independent innovation is weak and external dependence for key 

technologies and advanced equipment is high. Enterprise-led manufacturing innovation 

systems have yet to be perfected. Product quality is not high and China has few 

world-famous brands. Resource and energy efficiency remains low, while environmental 

pollution is severe. The industrial structure and industry services remain immature. The 

manufacturing digitalization level is low and digital technologies have not been widely 

integrated into industry. The overall internationalization level is low and enterprises’ 

capacity to compete globally is deficient. All of the above problems must be solved for 

China to become an advanced manufacturing power.

Developing into a manufacturing power requires China to firmly seize new strategic 

opportunities, actively meet challenges, strengthen overall planning, pursue 

innovation-driven development, make effective policies, leverage the advantages of its 

system, and mobilize all social forces to work with courage and determination. To realize 

the transformation from Made in China to Created in China, from China Speed to China 

Quality, and from Chinese products to Chinese brands, we must rely mainly on domestic 

equipment and companies. By doing so we can execute the strategic task of transforming 

Chinese manufacturing from large to strong.
Accelerating the Industrial Internet of Things | www.iotone.com 8

Made in China 2025《中国制造 2025》

2. STRATEGIC PRINCIPLES AND GOALS

2.1 Guiding Principles

We need to implement the guiding principles of the Eighteenth National Party Congress 

and the Second, Third and Fourth Plenary Sessions of the Eighteenth Central Committee 

in order to follow a new path of industrialization with Chinese characteristics. 

Manufacturing innovation will be the theme, improving quality and performance the core, 

integration of the next-generation IT into manufacturing the main thread, intelligent 

manufacturing the main priority, and meeting the demands of economic and social 

development and national defense the goal. We should reinforce the industrial base, 

improve integrated levels and training systems for multi-talented personnel to promote 

industrial transformation, cultivate a manufacturing culture with Chinese characteristics, 

and realize the evolution of manufacturing from large to strong. The guiding principles are:

Innovation-driven Development - We will:

• Make innovation the guiding theme of manufacturing with breakthroughs in key 

technologies.

• Adapt institutions for innovation.

• Promote trans-industrial and interdisciplinary collaborative innovation, digitalization, 

network technologies, and smart technologies in manufacturing.

• Follow the innovation-driven path.

Quality First - We will:

• Continue to view quality as the core of manufacturing leadership, encourage 

enterprises to assume responsibility for product quality, and support quality-related 

research and domestic brands. 

• Develop standardized laws and regulations, quality supervision systems, and a 

quality-first culture. 

• Follow the path of competing with high quality.

Green Development - We will:

• Continue to take sustainable development as the focus of manufacturing power. 

• Promote the application of energy-saving and environmental protection 

technologies, processes and equipment to enable cleaner production. 
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Charting the 10-Year Transformation of Chinese Industry

• Follow the path of ecological development by developing the recycling economy, 

improving the efficiency of resource recycling, and establishing a sustainable 

manufacturing system.

Structure Optimization - We will: 

• Pursue structural adjustment as the key facilitator of manufacturing power. 

• Support development of advanced manufacturing, upgrade traditional industries, 

and transform production-oriented manufacturing into service-oriented 

manufacturing. 

• Optimize industrial structure, cultivate industrial clusters, and follow the path of 

improving system and organization performance.

Talent-oriented Development - We will: 

• Continue to develop talent as the foundation of the manufacturing influence. 

• Develop pragmatic mechanisms for personnel hiring, placement, and training, and 

cultivate professional, technical, managerial, and administrative personnel to meet 

the demands of modern manufacturing.

• Create an atmosphere that supports an entrepreneurial mindset, develop a skilled 

manufacturing talent pool, and build rational organization structures. 

• Follow the path of talent-driven development.

2.2 Basic Principles

Market-oriented and Government-led Development - We will:

• Comprehensively deepen reform, give markets the decisive role in allocating 

resources, strengthen the dominant position of enterprises, and stimulate the vitality 

and creativity of enterprise. 

• Actively transform government functions, strengthen strategic research, improve 

relevant policies, and create a stable environment for enterprises.

Pragmatic Planning with Long-term Perspective – We will:

• Accelerate structural transformation, upgrade quality and performance, and develop 

sustainable manufacturing capabilities in regard to bottlenecks and weak links that 

restrain manufacturing. 
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Made in China 2025《中国制造 2025》

• Understand the new round of technology and industrial revolution and make 

strategic plans and farsighted policies to consolidate current advantages and 

capture the high ground to manage future competition.

Holistic Advancement and Breakthroughs in Key Areas - We will:

• Continue to integrate holistic considerations. 

• Make wide-ranging plans and define innovation directions. 

• Promote full integration of military and civilian manufacturing to improve the overall 

capacity level. 

• Integrate resources, focus on key areas, implement major projects in focused areas, 

and make pursue breakthroughs aggressively in order to meet the demands of 

economic and social development and national security. 

Independent Development Open to Global Cooperation - We will:

• Master core technologies, perfect the industrial supply chain, and cultivate domestic 

capabilities in strategic areas related to national welfare, the people's livelihood, and 

industry security. 

• Continue to further expand the ‘Opening Up’ strategy to actively engage with global 

resources and markets, strengthen global distribution, promote international 

communication and cooperation, and develop new comparative advantages to 

improve the overall level of manufacturing.

2.3 Strategic Goals

In light of national conditions and global realities, China will work hard to realize strategic 

manufacturing goals by following the “Three Steps”.

First Step - Strive to turn China into a major manufacturing power in ten years.

• By 2020, we will achieve industrialization, consolidate manufacturing power, and 

greatly increase manufacturing digitalization. 

• We will master core technologies in key areas, strengthen competitiveness in areas 

where China leads globally, and greatly improve product quality. 

• Digitalization, networking, and informationization of manufacturing will make 

significant progress. Energy and material consumption per unit of industrial added 

value and pollutant emissions by major industries will significantly decrease.
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Charting the 10-Year Transformation of Chinese Industry

• By 2025, the overall quality of manufacturing will improve greatly, innovation 

capacity will enhance markedly, overall labor productivity will increase greatly, and 

the integration of IT into industry will reach an advanced level. 

• Energy and material consumption per unit of industrial added value and pollutant 

emissions of key industries will reach the developed economy level. 

• China will have a number of multinational enterprises and industrial clusters with 

strong international competitiveness, and the position of China in the global division 

of labor and the global value chain will improve significantly.

Second step: 

• By 2035, Chinese manufacturing will reach an intermediate level among world 

manufacturing powers. 

• We will greatly improve innovation capability, make breakthroughs in major areas, 

significantly increase overall competitiveness, lead global innovation in industries 

where China is most competitive, and comprehensively realize industrialization.

Third step: 

• By 2049, the centennial of the founding of New China, China’s manufacturing sector 

status will become more consolidated and China will become the leader among the 

world’s manufacturing powers. 

• We will have the capability to lead innovation and possess competitive advantages 

in major manufacturing areas, and will develop advanced technology and industrial 

systems.
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Made in China 2025《中国制造 2025》

Major Manufacturing Indicators, 2013 - 2025

Category Indicator 2013 2015 2020 2025

Innovation 

Capability

Internal R&D cost as a percentage 

of operating revenue of 

manufacturing firms (%)

0.88 0.95 1.26 1.68

Invention patents per billion RMB of 

operating revenue (#) 0.36 0.44 0.70 1.10

Quality and Value

Manufacturing quality 

competitiveness (index) 83.1 83.5 84.5 85.5

Manufacturing value-added rate

(% increase over 2015) - - 2 4

Average manufacturing labor 

productivity growth during the 

5-year Plan (%)

- - 7.5 6.5

Integration of IT 

and 

Industrialization

Broadband penetration (%) 37 50 70 82

Digital R&D and design tool 

penetration (%) 52 58 72 84

Key process control rate (%) 27 33 50 64

Green 

Development

Energy consumption decrease per 

unit of industrial value added

(% decrease over 2015)

- - 18 34

Carbon dioxide emission decrease 

rate per unit of industrial value 

added

(% decrease over 2015)

- - 22 40

Water consumption decrease per 

unit industrial value added

(% decrease over 2015)

- - 23 41

Industrial solid wastes 

comprehensive utilization ratio (%) 62 65 73 79
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Charting the 10-Year Transformation of Chinese Industry

3. STRATEGIC TASKS AND KEY POINTS 

To fulfill the strategic goal of transforming China’s manufacturing sector, we must follow the 

problem-oriented method, make an overall plan, and focus on key areas. The plan must 

embody the consensus of the entire society and lead to comprehensively increasing the 

development quality and core manufacturing competitiveness.

3.1 National Manufacturing Innovation Capability

We will perfect the manufacturing innovation system, which is based on enterprises and 

guided by the market, and which integrates government, production, education, research 

and operations. China will innovate in accordance with the industrial supply chain and will 

require carrying out research into core technologies, apply scientific and technological 

achievements in practice, and improve innovation capabilities in major areas.

Research Core Technologies - We will:

• Give enterprises the main role in innovation, support enterprises to improve 

innovation capability, promote National Technology Innovation Model Enterprises 

and enterprise technology centers, and involve enterprises in the decision-making 

and implementation of national technology plans. 

• Regularly formulate and release technology innovation roadmaps in major areas of 

manufacturing based on national strategy. 

• Continue to implement the National Sci-Tech Special Projects and support research 

of through the National Science and Technology Plan. 

• Enable key enterprises to play a leading role and universities and research 

institutions to play a supporting role to build a number of innovation coalitions and 

promote collaborative innovation involving government, production, education, 

research and operations

• Make breakthroughs in a number of key technologies which have significant impact 

on improving industrial competitiveness. 

Innovation Design Capability - We will:

• Launch initiatives to demonstrate innovation design in major areas, such as 

traditional manufacturing, strategic emerging industries, and the modern service 

industry, and comprehensively promote advanced designs that are green, smart 

and collaborative. 
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Made in China 2025《中国制造 2025》

• Conduct research to support advancement in digital design, process-integration 

design, complex process design, and systematic design. 

• Develop a number of key design software tools with domestic intellectual property 

rights and perfect an innovation design ecosystem. 

• Build several innovation design clusters with international collaboration, cultivate 

industrial design enterprises, and encourage original equipment manufacturers 

(OEMs) to build R&D centers to transfer to knowledge to domestic brands. 

• Develop innovation design education and set up the National Industrial Design 

Excellence Award to stimulate enthusiasm across society for innovation design.

Industrialization of Scientific and Technological Achievements - We will:

• Perfect the transformation and operation mechanism of scientific and technological 

achievements by providing guidance for scientific focus, information publishing and 

sharing, technology transfer, and industrial services centered on the technological 

trade market. 

• Improve incentive mechanism for commercializing research by reforming the usage, 

application, and revenue management of scientific and technological achievements

in public institutions, and by improving evaluation and pricing mechanisms. 

• Improve collaborative mechanisms through cooperation between government, 

production, education, research and operations in accordance with market rules and 

innovation practice, and direct financial and social capital to build a number of 

experimental centers of excellence for technology integration and engineering. 

• Accelerate the transformation and industrialization of national defense and promote 

two-way transfer between military and civilian technologies.

National Manufacturing Innovation System - We will:

• Strengthen overall planning, build a network of manufacturing innovation centers 

supported by engineering data centers, and promote market-oriented innovation 

selecting mechanisms and risk-reward sharing mechanisms that encourage 

innovation. 

• Make full use of present technology resources and adopt new mechanisms and 

models of cooperation between government and society to build a number of 

Industrial Technology Research Bases and to carry out industrialization research 

and demonstration projects. 
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Charting the 10-Year Transformation of Chinese Industry

• Build a number of public service platforms to promote collaborative manufacturing 

innovation. 

• Standardize and promote professional services in technology research, inspection 

and detection, technology assessment, intellectual property trade, quality 

certification, and personnel training to promote manufacturing transformation. 

• Build manufacturing engineering data centers in major areas to provide enterprises 

with platforms for sharing knowledge and data. 

• Form Industrial Technology Research Bases to carry out basic research, 

industrialization, and personnel training in accordance with the demands of 

industrial transformation and innovation in areas such as next generation IT, 

intelligent manufacturing, additive manufacturing, new materials, and biomedicine

• Build 15 Industrial Technology Research Bases by 2020 and strive to build 40 by 

2025.

Standards System - We will:

• Reform the standards system, standardization management systems, and carry out 

comprehensive standardization in areas like intelligent manufacturing. 

• Enable enterprises to play an important role in the process of standard setting, 

support alliances to promote standards, build innovation research bases to 

collaboratively research and establish standards. 

• Establish standards to meet the demands of markets and innovation, and establish 

self-declaration and self-monitoring systems for products and service. 

• Encourage and support enterprises, research institutions, and industry associations 

to participate in the process of making international standards, and work to 

accelerate the internationalization of Chinese standards. 

• Vigorously make national security equipment adopt advanced civilian standards and 

promote the application of military standards in civilian areas. 

• Robustly advertise and implement standards.

Intellectual Property Rights (IPR) - We will:

• Strengthen IPR reserves in major areas of manufacturing and build 

industrialization-oriented patent pools strategically. 
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Made in China 2025《中国制造 2025》

• Encourage and support enterprises to compete with IPR, cultivate enterprises with 

globally competitive IPR, and form IPR coalitions to promote collaborative use of 

IPR among domestic enterprises. 

• Steadily promote decryption and marketization of national security IPR. 

• Establish and improve the IPR review mechanism and encourage and support key 

enterprises and professional institutions to cooperate in major areas on patent 

evaluation, acquisition, operation, risk assessment, and risk response. 

• Build a public service platform to support use of IPR. 

• Encourage multinational IPR licensing and formulate policies to lower the cost for 

small and medium-sized enterprises to apply for and protect IPR.

3.2 Full Integration of Informatization and Industrialization

We will promote the full integration of next generation IT and industrialization and take 

intelligent manufacturing as the main priority of integration. We will focus on developing 

intelligent equipment and products, making the manufacturing process intelligent, and 

cultivating new types of production methods to comprehensively improve the intelligence 

level of R&D, production, management, and services.

Intelligent Manufacturing Development Strategy - We will:

• Formulate intelligent manufacturing development planning and define development 

goals, major tasks and structure. 

• Accelerate intelligent manufacturing standards and perfect the management criteria 

system of industrialization. 

• Set up an intelligent manufacturing coalition to collaboratively promote intelligent 

equipment, R&D, systematic integrated innovation, and industrialization. 

• Promote the integrated application of industrial Internet, cloud computing, and big 

data across the entire industrial chain from R&D and design to manufacturing, 

operations, management, sales and service. 

• Strengthen network security of intelligent manufacturing control systems and overall 

system security.

Intelligent Manufacturing Equipment and Products - We will:

• Research intelligent production lines and intelligent manufacturing equipment like 

high-end, digitally controlled machine tools, industrial robots and additive 
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Charting the 10-Year Transformation of Chinese Industry

manufacturing equipment, which feature depth perception, intelligent 

decision-making, and automation. 

• Make breakthroughs in core intelligence component like sensors, meters, industrial 

control system, servomotors, drivers, and reducer. 

• Support precision manufacturing and agile manufacturing in key industries, 

including machinery, aerospace, shipping, automobile, light industry, textile, food, 

and electrical equipment. 

• Make overall plans to promote R&D and industrialization of intelligent vehicles, 

intelligent machinery, robots, intelligent appliances, intelligent lighting equipment, 

and wearable equipment.

Intelligent Manufacturing Processes - We will: 

• Build experimental intelligent plants and digital workplaces to apply technologies 

that enable man-machine interaction, industrial robots, intelligent logistics 

management, and additive manufacturing, and promote the simulation, optimization, 

numerical control, real-time monitoring, and self-adaptive control of manufacturing 

technology. 

• Accelerate development of product life-cycle management systems, customer 

relationship management (CRM) systems, and supply chain management systems. 

• Integrate linkages between group management and control, design and 

manufacturing, and production and marketing. 

• Strengthen intelligent detection and supervision systems in major industries like civil 

explosives, dangerous chemicals, food, printing and dyeing, rare earth metals, and 

pesticides.

Internet Applications in Manufacturing - We will:

• Create a roadmap for the integration of the Internet into manufacturing systems to 

define the direction, goals, and path. 

• Develop new manufacturing modes based on personalized customization, 

crowd-sourced design, and cloud manufacturing, and develop methods of research, 

manufacturing, industrial organization that are based on dynamically sensing 

consumer demands. 

• Build a win-win industrial ecosystem. 
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Made in China 2025《中国制造 2025》

• Accelerate Internet of Things research and application demonstration by cultivating 

new industrial Internet applications like intelligent monitoring, remote diagnosis and 

management, and supply chain tracking. 

• Build innovation pilots of industrial cloud and industrial big data applications and set 

up advances industrial cloud service and big data platforms to promote opening up 

and sharing of software, service, design, and manufacturing resources and 

standards. 

Internet Infrastructure - We will:

• Strengthen planning and layout of industry Internet infrastructure and build industrial 

Internet features with low latency, high reliability and wide coverage. 

• Apply and build optical networks, mobile networks, and wireless local area networks 

(WLAN) in manufacturing clusters to improve enterprises’ broadband network 

access capabilities. 

• Develop intelligent control systems, industrial application software, fault diagnose 

software, and related tools, as well as sensing and communication system protocols 

to realize real-time connection, precise identification, effective interactions and 

intelligent control of people, equipment, and products.

Intelligent Manufacturing Projects - We will:

• Focus on key links in major manufacturing areas to carry out integrated innovation 

and industry applications of next generation IT and manufacturing equipment. 

• Support collaborative research and industrialization of smart products and 

equipment. We will rely on strong enterprises to focus on key technologies, such as 

replacing people with robots in key positions, intelligent process control in 

production, supply chain optimization, and intelligent plants. 

• Classify and make pilot demonstrations to promote manufacturing technology, 

discrete manufacturing, intelligent equipment and products, new formats and 

models, intelligent management, and intelligent services. 

• Build intelligent manufacturing standard system and information security system and 

set up an intelligent manufacturing network system platform.
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Charting the 10-Year Transformation of Chinese Industry

By 2020, intelligent level in major manufacturing areas will significantly increase. The 

operating cost of pilot demonstration projects will decrease by 30%. Production cycles will 

decrease by 30% and faulty product rates will decrease by 30%. By 2025, major 

manufacturing areas will become fully digitalized. Operation costs of pilot demonstration 

projects will decrease by 50%. Production cycle will decrease by 50% and faulty product 

rates will decrease by 50%. 

3.3 Fundamental Industrial Capabilities

A weak industry foundation in essential spare parts and components, advanced techniques, 

key materials and industrial technology (hereinafter referred to as the “Four Foundations”) 

restrains Chinese manufacturing innovation and quality improvement. We must adhere to 

the principles of focusing on key problems, aligning production with demand, innovating 

collaboratively, and making technical breakthroughs at key points to remove the bottleneck 

that restrains industrial competitiveness.

Comprehensively promoting the “Four Foundations” is central to Chinese manufacturing 

evolution. 

Project Planning to Define Primary Directions, Targets, and Approaches - We will:

• Publish development guidelines for the “Four Foundations”, issue reports on the 

Industrial Foundation Improvement Project and carry out the Industrial Foundation 

Improvement Project. 

• Coordinate both military and civilian resources to make breakthroughs with joint 

efforts in civil-military dual-use technology and support effective exchange of civilian 

and military technology to promote integrated development. 

• Strengthen fundamental standards and measuring systems and accelerate 

benchmarking in order to improve quality, reliability and lifetime value of products. 

• Build multi-departments coordination mechanisms to improve factor efficiency. 

Strengthen the “Four Foundations” Innovation Capability - We will:

• Strengthen fundamental research and focus on core technologies that affect the 

performance and stability of essential spare parts and components. 

• Build a fundamental technology innovation system and make full use of available 

resources to build fundamental technology research institutions to coordinate joint 

efforts in key manufacturing technologies, such as advanced modeling and 

processing. 

• Support enterprises to develop new technologies and to cultivate talents. 
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Made in China 2025《中国制造 2025》

• Strengthen the research of fundamental proprietary materials to improve China’s 

self-sufficiency in the proprietary materials supply chain and manufacturing 

technology. 

• Build the National Industrial Foundation Database to collect, manage, and apply 

enterprise test and measurement data. 

• Put more efforts into the “Four Foundations” technology research by leading 

industry investment funds and venture capital firms to invest across projects 

addressing the “Four Foundations”.

Coordinate Development of Complete Machine Manufacturing - We will:

• Focus on demand incentives by aligning production with experience and conducting 

collaborative research in the area.

• Leverage the National Science and Technology Plan (special projects and funds) 

and related projects to enable development of complete machine manufacturing by 

coordinating “Four Foundations” related enterprises, universities and research 

institutions in key areas, such as digital control machines, railway transportation 

equipment, aerospace and aeronautics, and power generation equipment. 

• Build industry coalitions, form a new model for collaborative innovation, and 

combine production and experience to improve localization of major equipment.

• Use the Industrial Foundation Improvement Project as a demonstration case to 

promote essential spare parts and components, advanced techniques and 

fundamental materials.

Industrial Foundation Improvement Project - We will:

• Create demonstration projects by building risk-reward compensation mechanisms to 

support early movers and to illustrate interdisciplinary applications of essential spare 

parts and components, advanced techniques, and key materials. 

• Support research collaboration between organizations in government, production, 

education, research and operations to remove China’s engineering and 

industrialization bottlenecks in fundamental materials and spare parts. 

• Emphasize the supporting role of private platforms, build “Four Foundations” 

research centers, and create a number of public service platforms to improve 

fundamental technology system in major industries. 

By 2020, 40% of essential spare parts and key materials will have domestic sources. The 

unfavorable supply chain situation will remit gradually in advanced industries, such as 

aerospace and aeronautic equipment, communication equipment, power generation and 

power transmission equipment, engineering machinery, railway equipment, and household 

appliances. 
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Charting the 10-Year Transformation of Chinese Industry

By 2025, 70% of the essential spare parts and key materials will realize have domestic 

sources. We will build an improved industrial technology service system and gradually form 

a complete machine-led industrial innovation development process in which enterprises 

can interact collaboratively.

3.4 Quality and Branding

China will improve quality-control technology, perfect quality management mechanisms, 

optimize the quality assurance environment, and overall strive to greatly improve the 

quality of domestic manufacturing. We will encourage enterprises to pursue excellent 

quality and build brand-name products with proprietary IPR to increase company value and 

to improve the image of Made in China.

Advanced Quality Management Technology and Methods - We will:

• Build a product standards conformity certification platform and promote technology 

and safety standard to comprehensively reach the level of advanced economies. 

• Use leading enterprises as model showcases and demonstrations to promote 

advanced production management models and methods, such as six sigma, lean 

production, quality diagnose, and continuous quality improvement. 

• Support enterprises to improve the ability of on-line quality monitoring, on-line 

control, and product life-cycle quality tracking. 

• Promote technology optimization in major industries and improve control over key 

processes. 

• Promote quality management activities, such as quality management groups. 

• Strengthen quality management of small and medium enterprises and launch 

activities to improve the talent level, such as safety training, evaluation, and 

mentoring.

Product Quality - We will:

• Execute plans to improve industrial production quality. 

• Make breakthroughs in technologies that have restrained product quality 

improvements, prioritizing major industries, such as automotive, digitally controlled 

machine tools, railway equipment, engineering machinery, specialty equipment, key 

raw materials, spare parts, and electronic components. 

• Strengthen research and application of reliability design, testing and verification 

technology.

• Promote advanced modeling and processing methods, on-line detecting equipment, 

intelligent production, logistics systems, and detecting equipment to make indicators 
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Made in China 2025《中国制造 2025》

like performance consistency, quality reliability, environmental adaptability and 

service life of major physical products reach advanced levels in their categories. 

• Apply quality management, self-declaration, and quality tracking systems across the 

product lifecycle in areas like food, pharmaceutical, infant and children supplies, and 

household appliances to protect the quality security of major consumer products. 

• Improve the reliability of national defense equipment to strengthen the actual 

combat capability of national defense services.

Quality Supervision Systems - We will: 

• Perfect product quality standard systems, policy planning systems, and quality 

management laws and regulations. 

• Strengthen industry access and market withdrawal management in major areas 

related to people’s livelihood and security. 

• Build compulsory reporting systems for product incident in enterprises producing 

consumer goods and perfect information collection and publishing systems of 

quality credit to make enterprises the main body of quality responsibility. 

• Set up a quality blacklist system by taking records of violation of laws and 

regulations in quality as important reference to rate enterprises’ credit and intensify

the power to crack down and punish illegal acts related to poor quality and 

counterfeit brands. 

• Set up regional and industrial quality security warning systems to reduce risks 

related to quality security.

Quality Foundation - We will:

• Formulate and implement manufacturing quality, security, hygiene, environmental, 

and energy-saving standards matching advanced international levels. 

• Strengthen fundamental and frontier research of science and technology 

measurements to build a number of metrological standards with high accuracy and 

stability to improve the capabilities of national manufacturing quality monitoring. 

• Establish national industrial metrology test centers and a national metrology 

innovation system. 

• Perfect inspection and detection security systems by building high-level industrial 

quality evaluation laboratories and product quality supervision and inspection 

centers, and by encouraging professional detection technology coalitions. 

• Perfect certification and accreditation management models by improving 

effectiveness of compulsory product certification and promoting voluntary product 

certification to improve management system levels and promote international 

authentication. 
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Charting the 10-Year Transformation of Chinese Industry

• Support industrial associations to publish self-discipline criteria or conventions and 

carry out quality commitment activities.

Manufacturing Brand Building - We will:

• Encourage enterprises to build brand management systems focusing on R&D, 

production, quality management, and marketing to consolidate the basis of Chinese 

brands. 

• Cultivate a number of professional institutions for brand cultivation and operation, 

and to provide brand management consulting and marketing service. 

• Perfect registration and management systems for collective brand and certification 

marks. 

• Build competitive regional brands in industrial clusters with distinctive characteristics 

and a good market reputation. 

• Cultivate brand culture by leading enterprises to strengthen brand awareness based 

on quality and reputation, establishing brand development concepts, and improving 

awareness of the added value and soft power of brands. 

• Accelerate internationalization of China’s brands. 

• Intensify the power to promote Chinese brands and establish the image of Chinese 

brands by making full use of media. 

3.5 Green Production

In order to intensify capabilities for researching advanced energy-saving and 

environmental technology and for accelerating the environmental updating of 

manufacturing we will actively promote low-carbon, recycling, increase the efficiency of 

manufacturing resource consumption, strengthen life-cycle green product management, 

and set up a high efficiency green manufacturing system.

Accelerate Green Manufacturing - We will:

• Comprehensively promote green upgrading in traditional industries like steel, 

nonferrous metals, chemicals, building materials, light industry, and printing and 

dyeing. 

• Intensify the research capabilities and promote green technology and equipment to 

support waste heat and pressure recycling, water recycling, heavy metal pollution 

reduction, poisonous and harmful material replacement, utilization of industry waste 

residues, desulfurization, and dust reduction. 

• Apply processing technologies like high-efficiency casting, forging and pressing, 

welding, surface treatment, and cutting to further green production. 
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Made in China 2025《中国制造 2025》

• Research technologies to enable products that are lightweight, low power, and 

recyclable. 

• Improve the energy efficiency of energy-using products like electrical machines, 

boilers, and combustion engines, and accelerate the elimination of outdated 

mechanical and electrical products and technology. 

• Actively lead green development in emerging industries.

• Significantly decrease energy consumption in production and use of restricted 

substance content in electronic products. 

• Build green data centers and green base stations to promote low-carbon 

development of new materials, new energy, high-end equipment, and bio-industry.

Efficient Resource Use and Recycling - We will:

• Support enterprises to strengthen technology innovation and to improve green and 

lean production capability.

• Significantly reduce energy consumption, material consumption and water 

consumption. 

• Continue to increase the ratio of green and low-carbon energy. 

• Build a distributed low-carbon, smart micro-power grid in industrial parks and 

enterprises to control and reduce fossil energy consumption. 

• Comprehensively promote recycling and promote materials and resource sharing 

among enterprises, industrial parks and industries. 

• Promote the standardization and scaling of the recycling industry to strengthen 

support of technology equipment and improve comprehensive utilization of large 

industrial solid waste, scrap metal, and discarded electrical and electronic 

equipment. 

• Intensify capabilities for high-end reproduction, intelligent reproduction and 

in-service reproduction, and promote production certification to promote sustained 

and healthy development of reproductions.

Green Manufacturing System - We will:

• Support enterprises to develop green products, promote ecological designs to 

significantly increase energy efficiency in production and across the product 

lifecycle. 

• Build green factories that realize intensification, material safety, clean production, 

waste recycling, and low carbon energy sources. 

• Develop green industrial parks and promote industry coupling in industrial parks to 

realize near zero emissions. 
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Charting the 10-Year Transformation of Chinese Industry

• Build green supply chains by building resource-saving and environmentally friendly 

procurement, production, marketing, recycling and logistics systems, and by 

implementing an extended producer responsibility system. 

• Strengthen green enterprises and support enterprises that implement a green 

strategy, green standards, green management and green production. 

• Strengthen green supervision by perfecting energy savings and environmental 

regulations and standard systems, reinforcing energy saving and environmental 

protection supervision, promoting corporate social responsibility reporting systems, 

and implementing green assessments.

Green Manufacturing Projects - We will:

• Carry out special technological upgrading to increase energy efficiency, clean 

production, water-savings and waste treatment and recycling in traditional 

manufacturing. 

• Make industrial demonstration of technologies for energy-savings, environmental 

protection, resource efficiency, material reproduction, and low-carbon energy. 

• Promote special projects to control sources of atmospheric pollution, water pollution 

and soil pollution. 

• Formulate standard and assessment systems for green products, factories, 

industrial parks and enterprises.

By 2020, a thousand green demonstration factories and a hundred green demonstration 

industrial parks will be built. There will be a transformation of energy and resource 

consumption in some heavy chemical industries. Major contaminant emission intensity in 

major industries will decrease by 20%. By 2025, manufacturing green development and 

consumption of green products will reach advanced international levels and a green 

manufacturing system will be set up. 

3.6 Breakthroughs in Major Areas

We will focus on strategic points like next generation IT, high-end equipment, new 

materials and bio-pharmaceuticals and devote social resources to develop strategic 

industries.

3.6.1 Next Generation IT

Integrated Circuits and Special Equipment - We will: 

• Improve integrated circuit design and continue to enrich intellectual property (IP) 

design tools. 
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Made in China 2025《中国制造 2025》

• Make breakthroughs in core chips that are related to national information and 

network security and complete electronic machine development to improve the 

adoption of domestic chips. 

• Master high-density packaging and three dimensional (3D) micro-packaging to 

improve the independent development ability of China’s packaging industry and 

testing. 

• Cultivate key manufacturing equipment supply chain.

Communication Equipment - We will:

• Master core technologies like new computing, high-speed Internet, advanced 

storage and systematic security. 

• Make breakthroughs in 5th generation mobile communication (5G), core routing 

switching, super high speed and large capacity intelligent optical transmission and 

core technology and architecture of the future network. 

• Promote quantum computing and neural networking. 

• Research equipment like high-end servers, mass storage, new routing switches, 

new intelligent terminals, next generation base stations and network security to 

promote systematization and scale applications of core communication equipment.

Operating Systems and Industrial Software - We will:

• Develop fundamental industrial software like operating systems and security. 

• Make breakthroughs in high-end industrial software technology like intelligent 

design, simulation tools, industrial Internet of Things, and big data processing. 

• Develop independent and controllable high-end industrial platform software and 

application software in major areas. 

• Build and perfect integrated standard and safety evaluation systems for industrial 

software. 

• Promote systematization and industrialization of independent industrial software. 

3.6.2 High-end Digital Control Machine Tools and Robots

High-end Digital Control Machine Tools - We will:

• Develop precision machine tools capable of high speed, high efficiency and 

functional flexibility, and develop manufacturing equipment and integrated 

manufacturing systems. 

• Accelerate research of frontier technologies and equipment like high-end digital 

control machine tools and additive manufacturing. 

• Focus on reliability, stability and precision of major parts like high-end numerical 

systems, servomotors, bearings and grating to realize industrialization. 
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Charting the 10-Year Transformation of Chinese Industry

• Improve user process certification.

Robots – We will:

• Actively research new products and promote robotic standardization and market 

application modularization in order to meet demand for industrial robots in 

automobile, machinery, electronics, chemicals and light industry, specialty robots 

and service robots in medical treatment, domestic services, education and 

entertainment. 

• Remove the bottleneck of essential spare parts like robot bodies, reducers, 

servomotors, controllers, sensors, drivers and integrated system design.

3.6.3 Aerospace and Aeronautic Equipment

Aerospace equipment - We will:

• Accelerate large aircraft research to develop wide-bodied airplanes and encourage 

international cooperation on heavy helicopter research.

• Promote industrialization of regional line aircraft, helicopter, unmanned aerial 

vehicles and general-purpose airplanes. 

• Make breakthroughs in high thrust-weight ratio, advanced turboprop (turboshaft) 

engine and high bypass ratio turbofan engine and build a domestic industrial engine 

system. 

• Develop advanced airborne equipment and systems to build and independent 

aerospace industry supply chain.

Aeronautic Equipment - We will:

• Develop the next generation carrier rocket and heavy carrier to improve the capacity 

to access space. 

• Improve national and civilian space infrastructure by developing new platforms, 

satellite types, and Internet linking space, sky and ground.

• Cultivate long-term and stable spatial information services like satellite remote 

sensing, communication and navigation. 

• Promote manned space flight and lunar exploration and moderate development of 

deep space exploration. 

• Promote the transformation of aeronautic technology and the application of space 

technology.

3.6.4 Oceanographic Engineering Equipment and High-technology Shipping - We will: 

• Intensify efforts to develop equipment and key systems for deep-sea exploration, 

resources exploitation, and offshore operations. 
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Made in China 2025《中国制造 2025》

• Promote development and engineering of deep-sea space stations and large 

floating structures. 

• Acquire capabilities for comprehensive testing, detection and evaluation related to 

marine engineering equipment to improve utilization of oceans. 

• Make breakthroughs in luxury cruise design and construction, comprehensively 

improve international competitiveness of high-technology ships like liquefied natural 

gas carriers.

• Master core technologies for major corollary equipment in intensified, intelligent and 

modularized design and manufacturing.

3.6.5 Advanced Rail Transportation Equipment - We will:

• Apply new materials, technology and craft focusing on systematic security, energy 

savings and environmental protection, and digital technology to develop advanced 

and reliable products and lightweight, modularized products. 

• Develop a next generation green, intelligent, high-speed and heavy-load rail 

transportation equipment system to provide customers with a total solution focusing 

on system life cycle. 

• Build the world’s leading rail transportation industry system.

3.6.6 Energy Efficient and New Energy Automobiles - We will:

• Continue to support electric automobiles and fuel cell vehicles. 

• Master core automobile technologies for low carbon, informatization and 

intelligence. 

• Improve engineering and industrialization capability of core technology like batteries, 

driving motors, efficient combustion engines, advanced derailleurs, lightweight 

materials and intelligent controls. 

• Build a complete industrial system and an innovation system ranging from essential 

spare parts to complete automobiles.

• Promote energy-savings and new energy automobiles with independent brands to 

match advanced international levels.

3.6.7 Electric Power Equipment - We will:

• Promote industrialization and demonstrate efficient, super-clean emission coal 

power generation. 

• Continue to improve the manufacturing level of high capacity hydropower 

generation facilities, nuclear power generation facilities and heavy gas turbines. 

• Develop new energy and renewable resources equipment, advanced energy 

storage devices, intelligent power grid transmission and transformation, and end 

user devices. 
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Charting the 10-Year Transformation of Chinese Industry

• Make breakthroughs in the manufacturing and application of key components and 

materials like high-power electrical components and high temperature super 

conductors.

3.6.8 Agricultural Machinery Equipment - We will:

• Focus on advanced agricultural machinery needed in production of staple foods like 

grain, cotton, oil and sugar, and strategic commercial crops like breeding, ploughing 

and sowing, planting, maintenance, harvesting, transportation and storage. 

• Develop high-end agricultural machinery like large tractors and duplex operation 

machines and tools. 

• Develop high-end agriculture equipment like efficient combine harvesters and core 

spare parts. 

• Improve the capability of agricultural machinery in collecting information, intelligent 

decisions and precise operations. 

• Develop total digital solutions for agriculture.

3.6.9 New Materials - We will:

• Focus on special function metal materials, high performance structural materials, 

functional molecular materials, special inorganic non-metallic materials and 

advanced composite materials. 

• Research key technology and equipment for new material manufacturing like 

advanced smelting, coagulation casting, vapor deposition, section processing and 

efficient synthesis.

• Actively develop special new materials shared by military and civil sectors and 

accelerate two-way transmission and transformation of technology to promote 

civil-military integrated development in new material industries. 

• Focus on the effect of disruptive new materials on traditional materials by planning 

and researching strategic frontier materials like superconductors, nano-materials, 

graphene and bio-based materials. 

• Accelerate upgrading of fundamental materials.

3.6.10 Bio-pharmaceuticals and High-performance Medical Equipment - We will:

• Develop new medical products using chemicals and biotechnology to address 

critical diseases, including antibody drugs, antibody coupling drugs, new structural 

proteins, polypeptide drugs, and new vaccines. 

• Develop innovation traditional Chinese medicine with prominent clinic advantages.

• Develop technologies to support individualized drug treatments. 
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Made in China 2025《中国制造 2025》

• Improve the innovation capability and industrialization level of medical apparatus 

and instruments, focusing on efficient diagnosis and treatment equipment (imaging 

equipment and medical robots), high-value medical supplies (fully-degradable stent), 

and mobile medical products (wearable and remote diagnosis equipment). 

• Make breakthroughs in new technologies like 3D bio-printing and induced 

pluripotent stem cells.

3.6.11 High-end Equipment Innovation Projects - We will:

• Carry out a number of innovation and industrialized special projects and major 

projects in large airplanes, aerospace-engines, gas turbines, civil aeronautics, 

intelligent green trains, new energy automobiles, ocean engineering equipment and 

high technology ships, intelligent power grids, high-end digital control machine tools, 

nuclear power equipment and high-end medical equipment. 

• Develop a number of iconic products and equipment to improve independent design 

and system integration capability. 

• Remove the bottleneck of generic technology to realize engineering and 

industrialization. 

By 2020, we will realize independent research and applications in the above areas. By 

2025, the market share of high-end equipment with independent intellectual property will 

increase significantly. External dependence of core technology will significantly decrease. 

China’s ability to provide fundamental auxiliary items will greatly increase. Equipment in 

major areas will reach advanced international levels.

3.7 Structure Adjustment in Manufacturing

We will drive traditional industries to develop to the mid-high end of the market and 

gradually reduce excess production capacity. This goal will be supported by promoting 

coordinated development between large enterprises and small and medium enterprises 

and by further optimizing manufacturing layout.

Promote Enterprises Technology Upgrading - We will:

• Support strategic major projects and high-end equipment technology upgrading.

• Stabilize the fund for central technological upgrading and build a long-term 

mechanism to support technology upgrades. 

• Perfect the policy system to support technology upgrading by promoting legislation 

related to technology upgrades and strengthening incentives and restraint

mechanisms. 

• Support technology upgrading in major industries and products, and guide 

enterprises to adopt advanced technology to optimize product structures. 
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Charting the 10-Year Transformation of Chinese Industry

• Comprehensively improve design, manufacturing, technology, and management in 

industries like steeling, petrochemicals, engineering machinery, light industry and 

textiles to drive Chinese products to the top of the value chain. 

• Formulate investment guidelines for major industries technological transformations 

to attract social capital and optimize the structure of industrial investment. 

• Give high priority to upgrades in traditional areas through integration of IT and 

industrialization, energy saving and cost reducing, quality improvement and safety 

production. 

• Promote new technology, new craft, new equipment and new materials.

Excess Production Capacity Contradiction - We will:

• Strengthen and improve macro control and implement different policies in relevant 

industries based on the principles of absorbing, transferring, integrating and closing 

down to reduce excess production capacity. 

• Strengthen industry standards and entry administration and drive enterprises to 

upgrade technology and equipment to optimize inventory capacity. 

• Strengthen dynamic monitoring analysis of severe overcapacity industries by 

building and perfecting early warning system and guiding enterprises to quit 

overcapacity industries. We will let market play a role and comprehensively use 

means of law, economy, technology and necessary administration to accelerate 

closing down outdated production facilities.

Coordinated Development between Large, Medium and Small Enterprises - We will:

• Strengthen the dominant position of enterprises in the market and support strategic 

cooperation and M&A to improve scale and cultivate conglomerates with strong 

core competitiveness. 

• Stimulate the innovation vigor of small and medium enterprises and develop a 

number of specialized medium-sized enterprises that are prominent in niche 

markets. 

• Support cooperation between Sino-foreign small and medium enterprises and 

support them to go global and attract foreign investment by making use of bilateral 

and multilateral cooperation systems. 

• Guide large enterprises and small and medium enterprises to build coordinated 

relationship of collaborative innovation and win-win cooperation through division of

labor based on specialization, service outsourcing and make to order (MTO). 

• Develop a number of high-quality small and medium enterprise clusters. 
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Made in China 2025《中国制造 2025》

Optimize the layout of manufacturing - We will:

• Implement the National Regional Development Strategy and major function area 

planning. 

• Comprehensively consider natural and energy resources, environmental capacity 

and market capacity when implementing industries plans and optimizing production 

systems. 

• Perfect the industrial transfer guidelines, build a national industrial transfer 

information service platform and set up a number of demonstration parks to guide 

industry transfer and promote coordinated development of eastern, central and 

western manufacturing. 

• Promote coordinated development of industries in the Beijing-Tianjin-Hebei Region 

and the Yangtze River Region. 

• Reform and upgrade manufacturing clusters to meet new industrialization 

requirements and to consolidate industrial clusters. 

• Build a number of new industrial demonstration bases with highly efficiency 

industrial chain synergies, strong core competitiveness and sound public service 

systems. 

3.8 Service-oriented Manufacturing and the Product Service Industry

Accelerating coordinated development of the manufacturing and service sectors and 

promoting business model innovation and structural innovation will allow China to increase 

manufacturing productivity and transform into service-oriented manufacturing. We will 

increase productive manufacturing services and develop service functional zones and 

service platforms.

Service-oriented Manufacturing - We will:

• Formulate guidelines to promote service-oriented manufacturing and implement 

service-oriented manufacturing plan. 

• Launch demonstration projects to help manufacturing enterprises extend the service 

chain and transform from providing products to providing products and services. 

• Encourage manufacturing enterprises to invest in services, develop customized 

services, practice life cycle management, execute network marketing, and provide 

online support services. 

• Support eligible enterprises to evolve from equipment providers into integrated 

system contractors and from product providers into total solution providers. 

• Encourage strong manufacturing enterprises to provide specialized service through 

business process re-building. 
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Charting the 10-Year Transformation of Chinese Industry

• Support eligible manufacturing enterprises to build financial institutions like financial 

service and financial leasing companies to promote finance and leasing services for 

large manufacturing equipment and production lines.

Development of Manufacturing Services - We will:

• Develop capabilities for manufacturing-oriented IT services, project design, and 

information application system development and integration in major industries. 

• Encourage Internet enterprises to develop innovation business models around 

mobile e-commerce, online customization, online to offline, dynamic supervision, 

and early product alerts to realize seamless coupling with manufacturing enterprises 

and innovative business cooperation and value creation. 

• Accelerate technology development of service supporting research and design, 

technology transfer, innovation incubation, IPR and technology consultation, as well 

as production service industries like third-party logistics, energy conservation and 

environmental protection, inspection and detection, certification, e-commerce, 

service outsourcing, finance and leasing, human resource management, after-sale 

service, and brand management to strengthen support for manufacturing 

transformation.

Service Functional Zones and Public Service Platforms - We will:

• Build manufacturing service functional zones that focus on modern services like 

research and design, information, logistics, business, and finance to improve 

influence capacity. 

• Build a number of manufacturing service public service platforms in industrial zones. 

• Encourage manufacturing enterprises in eastern areas to develop service-oriented 

businesses. 

• Support central and western areas to develop specialized and competitive 

manufacturing services and develop service facilities to realize coordinated 

development between manufacturing and service industries.

3.9 Internationalization of Manufacturing

An overall plan is necessary to take advantage of international and domestic resources and 

markets. By accelerating implementation of the “opening up” strategy and combining the 

principles of “going out” and “bringing in”, China will expand into new areas and improve 

international cooperation. We will promote the internationalization of major industries and 

guide enterprises to strengthen international competitiveness.
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Made in China 2025《中国制造 2025》

Utilization of Foreign Capital and International Cooperation - We will:

• Further open manufacturing and optimize the “opening up” structure to improve 

performance. 

• Encourage foreign capital to invest in high-end manufacturing like next generation IT, 

high-end equipment, new materials and bio-pharmaceuticals.

• Encourage foreign enterprises and research institutions to establish global research 

institutions in China. 

• Support legible enterprises to issue stock and bonds overseas and to carry out 

technology cooperation with foreign enterprises.

Transnational Operation Capability and International Competitiveness - We will:

• Develop Chinese multinational enterprises and improve their core competitiveness 

by taking advantage of global resources, business process re-engineering, industrial 

chain integration and capital market operations. 

• Support enterprises to perform mergers, equity investment and venture capital 

investment overseas.

• Support enterprises to establish research centers, experimental bases and global 

marketing and service operations overseas.

• Support enterprises to carry out Internet design, precision marketing, value-added 

service innovation and media brand promotion which rely on internet and set up 

global industrial chain system to improve international operation and service. 

• Encourage strong enterprises to develop international overall contract and total 

integration. 

• Guide enterprises to integrate into local culture, strengthen awareness of social 

responsibility, improve investment and operation risk management and improve 

their ability to localize in foreign countries.

International Industrial Cooperation and Internationalization - We will:

• Strengthen overall internationalization design by formulating a strategy for 

manufacturing to go abroad and building a planning and coordination system. 

• Actively participate in and promote international industrial cooperation and 

implement major strategic plans like the Silk Road Economic Belt and the 

21st-Century Maritime Silk Road to accelerate building interconnected infrastructure 

with surrounding countries and deep industrial cooperation.

• Make use of “opening up” along borders and build a number of overseas 

manufacturing cooperation parks in eligible countries. 

• Let government promote and enterprises lead the innovation of business models. 
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Charting the 10-Year Transformation of Chinese Industry

• Encourage the overseas transfer of high-end equipment, advanced technology and 

strong industry.

• Strengthen policy guidance and drive industrial cooperation to extend from 

processing and manufacturing to cooperative R&D, joint-design, marketing and 

brand development in order to improve international cooperation levels. 

• Innovate processing trade models and extend the domestic value-added chain to 

promote the transformation of processing trade.

4. STRATEGIC SUPPORT AND SUPPLY

In order to build a manufacturing power, we must put the socialist system to good use and 

mobilize all social forces. We need to further deepen reform and perfect policy and 

measures. Transforming Chinese manufacturing from large to strong will require flexible 

and efficient implementation mechanisms and cultivation of a manufacturing innovation 

culture with Chinese characteristics. 

4.1 Institutional Mechanism Reform – We will:

• Comprehensively promote law-based government administration and speed up the 

transformation of government functions.

• Promote innovations in government management to support implementation of 

strategies, plans, policies and manufacturing standards. 

• Strengthen industry self-regulation and the ability to provide public services and 

improve industrial governance levels. 

• Delegate more powers to lower-level governments and to society in general by 

further deepening the reform of administrative review and approval procedures, 

standardizing approval systems, and simplifying procedures.

• Revise investment project directories pre-approved by the government and 

establish the principal role of enterprises in investment. 

• Perfect collaborative research mechanisms involving government, production, 

education, research and operations and reform mechanisms for technological 

innovation management systems, project expenditure distribution, result 

assessment and transformation to promote capitalization of technology results and 

to stimulate manufacturing innovation vitality. 

• Allow markets to determine production factor prices and allocate public resources.

• Reform trading systems for pollution discharge, carbon emissions and water rights, 

promote resource tax ad valorem collection, and transform environmental protection 

fees into taxes. 

• Deepen state owned enterprise reform by perfecting corporation governance 
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Made in China 2025《中国制造 2025》

structures and developing the mixed ownership economy by further dividing industry 

monopolies and canceling unreasonable restrictions on the private economy. 

• Steadily reform defense-related science and technology industries and promote 

civil-military integration. 

• Perfect industrial safety review mechanisms and legal systems.

• Strengthen safety reviews for investment and financing, acquisition and 

reorganization, and bidding and purchasing in manufacturing areas central to the 

national economy and national security.

4.2 Fair Market Environment – We will:

• Deepen market access reform by revising the “negative industry list”, strengthening 

supervision and abolishing policies and measures that constrain a unified national 

market. 

• Implement scientific and normative systems to promote industry access by 

formulating and perfecting access standards in the areas of energy conservation, 

land conservation, water conservation, environmental protection, manufacturing 

technology and safety, and by strengthening supervision and inspection of national 

standards implementation. 

• Unify enforcement and guide enterprises to adjust their structure through market 

means. 

• Strengthen supervision to prevent the manufacturing and selling of counterfeit and 

faulty products, and harshly punish monopoly and unfair competition to create a 

positive operating environment for enterprises. 

• Develop technology markets and perfect innovation, operation, management and 

protection mechanism of intellectual property. 

• Perfect policies and measures for staff resettlement, redemption of debt, and 

enterprise transformation related to eliminating outdated capacity and perfecting 

mechanisms to exit markets. 

• Further remove the burden on enterprises by implementing a fee list system, 

building a national fee list library, canceling unreasonable fees and apportionments, 

and strengthening supervision and accountability. 

• Develop manufacturing enterprise credit systems by building a national 

manufacturing credit database and a system to dynamically review enterprise credit 

and for the purpose of awarding credit and punishing credit defaults. 

• Strengthen enterprise social responsibility and promote self-declaration and 

supervision systems for products standards, quality and safety.
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Charting the 10-Year Transformation of Chinese Industry

4.3 Financial Support Policies – We will:

• Deepen financial reform by widening manufacturing financing channels and 

reducing financing costs. 

• Actively take advantage of policy-based finance, development-oriented finance and 

commercial finance to support major areas like next generation IT, high-end 

equipment and new materials. 

• Support Export-Import Bank of China to strengthen services for manufacturing 

“going out” within its scope of business. 

• Encourage the China Development Bank to increase loans for manufacturing 

enterprises. 

• Lead financing institutions to develop products and business for manufacturing 

enterprises. 

• Perfect multi-level capital markets by developing regional equity markets supporting 

eligible manufacturing enterprises to seek financing from domestic and overseas 

equity markets and to issue various debt financing tools. 

• Lead venture capital and private equity to support manufacturing sector innovation. 

• Encourage eligible manufacturing loans and leasing assets to carry out security pilot 

projects. 

• Support large manufacturing enterprises and groups to carry out pilot projects 

integrating production and finance. 

• Promote manufacturing transformation and upgrading by financing leasing. 

• Explore insurance products and service for manufacturing and promote loan 

guarantee insurance and credit insurance industries. 

• Increase support for manufacturing enterprises to carry out overseas resource 

exploration, set up research centers, and execute mergers and acquisitions using 

offshore financing against domestic guarantees, foreign exchange and RMB loans, 

debt financing and equity financing under the prerequisites of controllable risk and 

sustainable business.

4.4 Fiscal and Taxation Policy - We will:

• Make full use of present channels to strengthen financial support and the policy 

environment for manufacturing with a focus on key areas for manufacturing 

transformation, namely intelligent manufacturing, the “Four Foundations”, and 

high-end equipment. 

• Use public-private partnerships (PPP) to allocate social capital to major projects, 

technology upgrading and key manufacturing infrastructure. 
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Made in China 2025《中国制造 2025》

• Innovate the support way of fiscal fund by transforming from subsidizing 

construction to subsidizing operation step by step and increase the effectiveness of 

financial fund. 

• Deepen technology planning (special projects and funds), technology management 

reform, and manufacturing technology research and demonstration projects to 

support technology innovation and structural adjustment. 

• Perfect and implement government purchasing policies supporting innovation. 

• Implement incentive policies, such as reducing the risk of investing in the first units 

of major equipment.

• Perfect incentive and control mechanisms for product innovation, value-added 

services and demonstration projects. 

• Implement taxation policies in favor of manufacturing transformation, promote 

added-value tax reform and perfect the calculation and auditing methods of 

research costs to reduce manufacturing enterprise tax burdens.

4.5 Multi-level Talent Cultivation Systems - We will:

• Strengthen overall planning and classified guidance on manufacturing talent 

development and implement manufacturing talent cultivation plan.

• Strengthen efforts to cultivate professional, technical, managerial and administrative 

personnel and perfect related talent development systems.

• Focus on improving modern operations by implementing the Quality Promotion 

Project for enterprises operations and management personnel and the Yin He 

Training Project to help small and medium enterprises cultivate entrepreneurs and 

high-level managerial personnel. 

• Focus on high-level and high demand professional and technical personnel by 

implementing the Knowledge Personnel Improvement Project.

• Increase the number of advanced manufacturing engineers by building engineering 

and innovation training centers in universities.

• Strengthen vocational education and skill training by enables undergraduate 

universities to transform into applied technology universities and by building training 

bases to carry out modern apprenticeship pilot demonstrations. 

• Encourage cooperation between enterprises and schools to cultivate researchers, 

technicians and inter-disciplinary professionals needed by manufacturing.

• Deepen enrollment numbers and quality of engineering doctorates and professional 

degrees to promote education combining production and research. 

• Strengthen industrial personnel demand forecasting, strengthen personnel 

databases and build industrial talent assessment systems and information 

distribution platforms. 
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Charting the 10-Year Transformation of Chinese Industry

• Set up talent incentive mechanisms and increase recognition and rewards for 

excellent talents. 

• Build and perfect manufacturing personnel service institutions and improve 

mechanisms for regulating the transfer of personnel between companies. 

• Select talented young professionals and students, especially those with a 

professional and technical background, to go abroad for study and training, while 

building international training bases in China.

4.6 Medium, Small and Micro Enterprise Policy - We will:

• Implement and perfect financial and taxation preferential policies to support small 

and micro businesses and optimize special funds for small and medium enterprises. 

• Make use of the financial lever effect to attract social capital to set up national 

development funds for small and medium enterprises. 

• Support eligible private capital to set up financial institutions like small and medium 

banks and encourage commercial banks to develop specialized financial services 

for small and micro enterprises, such as leasing guarantee systems and innovative 

financial products. 

• Accelerate the development of a credit investigation system for medium, small and 

micro enterprises and actively develop financing and leasing, intellectual property, 

loans, and credit insurance policies for small and micro enterprises. 

• Build and perfect the entrepreneurial foundation for small and medium enterprises 

and direct entrepreneurship investment funds to invest small and micro enterprises. 

• Encourage universities, research institutions, and engineering centers to open and 

share experimental facilities for medium and small enterprises. 

• Build integrated service systems for medium, small and micro enterprises by

perfecting public service platform networks for medium, small and micro enterprises, 

and by building information sharing mechanisms to provide medium, small and 

micro enterprises with specialized service related to entrepreneurship, innovation, 

financing, consultation, training and recruiting. 

4.7 Manufacturing Openness - We will:

• Deepen foreign investment reform by developing guidelines for national treatment 

of foreign investment, improving mechanisms to manage the “negative industry list”, 

and implementing approval management models that contribute to a stable, 

transparent and predictable business environment. 

• Comprehensively deepen foreign exchange management, customs supervision 

and inspection, and quarantine management reform to facilitate trading investment. 

• Further relax controls over market entry by revising industrial policy in the steel, 
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Made in China 2025《中国制造 2025》

chemical and shipping industries to encourage manufacturing enterprises to bring 

in advanced technology and experienced talent and to invest in commissioned 

development, patent licensing and crowd-sourcing. 

• Transform the utilization of foreign capital to emphasize joint ventures, collaborative 

development, outbound M&A, and recruiting top talent to work in China. 

• Strengthen outbound investment legislation to reinforce legal protection for 

manufacturing enterprises to establish global operations by standardizing outbound 

operations and protecting the legal rights of enterprises. 

• Explore channels like industrial funds and state-owned capital gains, and 

implement outbound investment and merger reform to support “going out” by 

competitive industries, such as high-speed rail, electric power equipment, 

automotive and engineering equipment. 

• Develop support and service institutions to accelerate “going out” by manufacturing 

enterprises, including building public service platforms for outbound investment

• Perfect early warning and coordination systems to reduce trading friction and 

manage major outbound investment events.

4.8 Organization and Implementation Systems:

A national leading group for rejuvenating Chinese manufacturing will be established and 

led by the head of the State Council, with group members appointed from relevant 

departments of the State Council. The main responsibilities of the leading group are: 

making overall plans and coordinating the overall rejuvenation of Chinese manufacturing; 

deliberating on major plans, policies, special projects, issues and working arrangements; 

strengthening strategic planning and guidance departments to support local governments 

in implementing plans. The group office will be established in the Ministry of Industry and 

Information and will undertake daily administrative work to support planning and execution. 

We will: 

• Set up a strategic advisory committee for rejuvenating Chinese manufacturing to 

research future strategic problems affecting manufacturing and to provide 

consultation and evaluation to support major decisions affecting the manufacturing 

sector. 

• Support multi-level, multi-area and multi-form think tanks with Chinese 

characteristics including social think tanks and enterprises think tanks to provide 

intellectual support to rejuvenate Chinese manufacturing. 

• Set up inspection and third party evaluation mechanisms to monitor implementation 

of Made in China 2025 and to perfect statistic monitoring mechanisms.

• Establish midterm evaluation mechanisms for Made in China 2025 and make 

necessary adjustment to goals as required.
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Charting the 10-Year Transformation of Chinese Industry

All districts and departments should fully understand the significance of rejuvenating 

Chinese manufacturing, strengthening organization and leadership, optimizing work 

mechanism, and improving department synergies and coordination across government 

levels. All districts should integrate local practices to research and formulate concrete 

implementation plans and refine policy measures to ensure that plans are executed. 

The Ministry of Industry and Information should strengthen tracking, analysis, incentives 

and guidance together with relevant departments and report major events to the State 

Council in a timely manner.

Accelerating the 

Industrial Internet of Things 

Sincerely,

Erik Walenza-Slabe | 王闻达

CEO | 首席执行官

P: + 86 21 6010 5058

M: + 86 156 0183 9705

E: erik.walenza@iotone.com

I: www.iotone.com

I sincerely hope this translation of the Made in China 2025 policy is useful to your business. 

IoT ONE is an information platform dedicated to mapping the Industrial IoT ecosystem. 

Companies use our platform to identify the partners they need to achieve transformative 

business results using Internet of Things technologies. End users and systems integrators 

use IoT ONE to identify new use cases, technologies, and technology providers. IoT 

vendors use the platform to enhance market awareness and connect with customers and 

partners.

The platform is free for all users. To learn more, visit us at www.iotone.com or contact me to 

schedule a discussion. 
Accelerating the Industrial Internet of Things | www.iotone.com 42

Made in China 2025《中国制造 2025》

Note: Following is the original policy in Chinese, as published by the State Council. 

《中国制造 2025》

2015 年 07 月 22 日

中国制造 2025

 制造业是国民经济的主体,是立国之本、兴国之器、强国之基。十八世纪中叶开启工业文明以来,世界强国的兴衰史

和中华民族的奋斗史一再证明,没有强大的制造业,就没有国家和民族的强盛。打造具有国际竞争力的制造业,是我国提

升综合国力、保障国家安全、建设世界强国的必由之路。

 新中国成立尤其是改革开放以来,我国制造业持续快速发展,建成了门类齐全、独立完整的产业体系,有力推动工业

化和现代化进程,显著增强综合国力,支撑我世界大国地位。然而,与世界先进水平相比,我国制造业仍然大而不强,在

自主创新能力、资源利用效率、产业结构水平、信息化程度、质量效益等方面差距明显,转型升级和跨越发展的任务紧迫

而艰巨。

 当前,新一轮科技革命和产业变革与我国加快转变经济发展方式形成历史性交汇,国际产业分工格局正在重塑。必须

紧紧抓住这一重大历史机遇,按照“四个全面”战略布局要求,实施制造强国战略,加强统筹规划和前瞻部署,力争通过三

个十年的努力,到新中国成立一百年时,把我国建设成为引领世界制造业发展的制造强国,为实现中华民族伟大复兴的中

国梦打下坚实基础。

《中国制造 2025》,是我国实施制造强国战略第一个十年的行动纲领。

 

一、发展形势和环境

(一)全球制造业格局面临重大调整。

 新一代信息技术与制造业深度融合,正在引发影响深远的产业变革,形成新的生产方式、产业形态、商业模式和经济

增长点。各国都在加大科技创新力度,推动三维(3D)打印、移动互联网、云计算、大数据、生物工程、新能源、新材

料等领域取得新突破。基于信息物理系统的智能装备、智能工厂等智能制造正在引领制造方式变革;网络众包、协同设计、

大规模个性化定制、精准供应链管理、全生命周期管理、电子商务等正在重塑产业价值链体系;可穿戴智能产品、智能家

电、智能汽车等智能终端产品不断拓展制造业新领域。我国制造业转型升级、创新发展迎来重大机遇。

全球产业竞争格局正在发生重大调整,我国在新一轮发展中面临巨大挑战。国际金融危机发生后,发达国家纷纷实施

“再工业化”战略,重塑制造业竞争新优势,加速推进新一轮全球贸易投资新格局。一些发展中国家也在加快谋划和布局,

积极参与全球产业再分工,承接产业及资本转移,拓展国际市场空间。我国制造业面临发达国家和其他发展中国家“双向

挤压”的严峻挑战,必须放眼全球,加紧战略部署,着眼建设制造强国,固本培元,化挑战为机遇,抢占制造业新一轮竞

争制高点。

(二)我国经济发展环境发生重大变化。

随着新型工业化、信息化、城镇化、农业现代化同步推进,超大规模内需潜力不断释放,为我国制造业发展提供了广

阔空间。各行业新的装备需求、人民群众新的消费需求、社会管理和公共服务新的民生需求、国防建设新的安全需求,都

要求制造业在重大技术装备创新、消费品质量和安全、公共服务设施设备供给和国防装备保障等方面迅速提升水平和能力。

全面深化改革和进一步扩大开放,将不断激发制造业发展活力和创造力,促进制造业转型升级。

我国经济发展进入新常态,制造业发展面临新挑战。资源和环境约束不断强化,劳动力等生产要素成本不断上升,投

资和出口增速明显放缓,主要依靠资源要素投入、规模扩张的粗放发展模式难以为继,调整结构、转型升级、提质增效刻

不容缓。形成经济增长新动力,塑造国际竞争新优势,重点在制造业,难点在制造业,出路也在制造业。

 
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Charting the 10-Year Transformation of Chinese Industry

(三)建设制造强国任务艰巨而紧迫。

 经过几十年的快速发展,我国制造业规模跃居世界第一位,建立起门类齐全、独立完整的制造体系,成为支撑我国经

济社会发展的重要基石和促进世界经济发展的重要力量。持续的技术创新,大大提高了我国制造业的综合竞争力。载人航

天、载人深潜、大型飞机、北斗卫星导航、超级计算机、高铁装备、百万千瓦级发电装备、万米深海石油钻探设备等一批

重大技术装备取得突破,形成了若干具有国际竞争力的优势产业和骨干企业,我国已具备了建设工业强国的基础和条件。

 但我国仍处于工业化进程中,与先进国家相比还有较大差距。制造业大而不强,自主创新能力弱,关键核心技术与高

端装备对外依存度高,以企业为主体的制造业创新体系不完善;产品档次不高,缺乏世界知名品牌;资源能源利用效率低,

环境污染问题较为突出;产业结构不合理,高端装备制造业和生产性服务业发展滞后;信息化水平不高,与工业化融合深

度不够;产业国际化程度不高,企业全球化经营能力不足。推进制造强国建设,必须着力解决以上问题。

 建设制造强国,必须紧紧抓住当前难得的战略机遇,积极应对挑战,加强统筹规划,突出创新驱动,制定特殊政策,

发挥制度优势,动员全社会力量奋力拼搏,更多依靠中国装备、依托中国品牌,实现中国制造向中国创造的转变,中国速

度向中国质量的转变,中国产品向中国品牌的转变,完成中国制造由大变强的战略任务。

二、战略方针和目标

(一)指导思想。

 全面贯彻党的十八大和十八届二中、三中、四中全会精神,坚持走中国特色新型工业化道路,以促进制造业创新发展

为主题,以提质增效为中心,以加快新一代信息技术与制造业深度融合为主线,以推进智能制造为主攻方向,以满足经济

社会发展和国防建设对重大技术装备的需求为目标,强化工业基础能力,提高综合集成水平,完善多层次多类型人才培养

体系,促进产业转型升级,培育有中国特色的制造文化,实现制造业由大变强的历史跨越。基本方针是:

 ——创新驱动。坚持把创新摆在制造业发展全局的核心位置,完善有利于创新的制度环境,推动跨领域跨行业协同创

新,突破一批重点领域关键共性技术,促进制造业数字化网络化智能化,走创新驱动的发展道路。

 ——质量为先。坚持把质量作为建设制造强国的生命线,强化企业质量主体责任,加强质量技术攻关、自主品牌培育。

建设法规标准体系、质量监管体系、先进质量文化,营造诚信经营的市场环境,走以质取胜的发展道路。

 ——绿色发展。坚持把可持续发展作为建设制造强国的重要着力点,加强节能环保技术、工艺、装备推广应用,全面

推行清洁生产。发展循环经济,提高资源回收利用效率,构建绿色制造体系,走生态文明的发展道路。

 ——结构优化。坚持把结构调整作为建设制造强国的关键环节,大力发展先进制造业,改造提升传统产业,推动生产

型制造向服务型制造转变。优化产业空间布局,培育一批具有核心竞争力的产业集群和企业群体,走提质增效的发展道路。

 ——人才为本。坚持把人才作为建设制造强国的根本,建立健全科学合理的选人、用人、育人机制,加快培养制造业

发展急需的专业技术人才、经营管理人才、技能人才。营造大众创业、万众创新的氛围,建设一支素质优良、结构合理的

制造业人才队伍,走人才引领的发展道路。

(二)基本原则。

 市场主导,政府引导。全面深化改革,充分发挥市场在资源配置中的决定性作用,强化企业主体地位,激发企业活力

和创造力。积极转变政府职能,加强战略研究和规划引导,完善相关支持政策,为企业发展创造良好环境。

立足当前,着眼长远。针对制约制造业发展的瓶颈和薄弱环节,加快转型升级和提质增效,切实提高制造业的核心竞

争力和可持续发展能力。准确把握新一轮科技革命和产业变革趋势,加强战略谋划和前瞻部署,扎扎实实打基础,在未来

竞争中占据制高点。

 整体推进,重点突破。坚持制造业发展全国一盘棋和分类指导相结合,统筹规划,合理布局,明确创新发展方向,促

进军民融合深度发展,加快推动制造业整体水平提升。围绕经济社会发展和国家安全重大需求,整合资源,突出重点,实

施若干重大工程,实现率先突破。

 自主发展,开放合作。在关系国计民生和产业安全的基础性、战略性、全局性领域,着力掌握关键核心技术,完善产

业链条,形成自主发展能力。继续扩大开放,积极利用全球资源和市场,加强产业全球布局和国际交流合作,形成新的比
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Made in China 2025《中国制造 2025》

较优势,提升制造业开放发展水平。

(三)战略目标。

 立足国情,立足现实,力争通过“三步走”实现制造强国的战略目标。

 第一步:力争用十年时间,迈入制造强国行列。

 到 2020 年,基本实现工业化,制造业大国地位进一步巩固,制造业信息化水平大幅提升。掌握一批重点领域关键核

心技术,优势领域竞争力进一步增强,产品质量有较大提高。制造业数字化、网络化、智能化取得明显进展。重点行业单

位工业增加值能耗、物耗及污染物排放明显下降。

 到 2025 年,制造业整体素质大幅提升,创新能力显著增强,全员劳动生产率明显提高,两化(工业化和信息化)融

合迈上新台阶。重点行业单位工业增加值能耗、物耗及污染物排放达到世界先进水平。形成一批具有较强国际竞争力的跨

国公司和产业集群,在全球产业分工和价值链中的地位明显提升。

 第二步:到 2035 年,我国制造业整体达到世界制造强国阵营中等水平。创新能力大幅提升,重点领域发展取得重大

突破,整体竞争力明显增强,优势行业形成全球创新引领能力,全面实现工业化。

第三步:新中国成立一百年时,制造业大国地位更加巩固,综合实力进入世界制造强国前列。制造业主要领域具有创

新引领能力和明显竞争优势,建成全球领先的技术体系和产业体系。
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Charting the 10-Year Transformation of Chinese Industry

2020 年和 2025 年制造业主要指标 

 类别 指 标 2013 年 2015 年 2020 年 2025 年

 创新能力

规模以上制造业研发经费内部支

出占主营业务收入比重(%)

0.88 0.95 1.26 1.68

规模以上制造业每亿元主营业务

收入有效发明专利数 1(件)

0.36 0.44 0.70 1.10

 质量效益 制造业质量竞争力指数 2 83.1 83.5 84.5 85.5

制造业增加值率提高 - -

比 2015 年提高 2

个百分点

比 2015 年提高 4

个百分点

制造业全员劳动生产率增速(%) - - 7.5(“十三五”期

间年均增速)

6.5(“十四五”期

间年均增速)

 两化融合 宽带普及率 3(%) 37 50 70 82

数字化研发设计工具普及率 4(%) 52 58 72 84

关键工序数控化率 5(%) 27 33 50 64

 绿色发展

规模以上单位工业增加值能耗下

降幅度 - -

比 2015 年下降

18%

比 2015 年下降

34%

单位工业增加值二氧化碳排放量

下降幅度 - -

比 2015 年下降

22%

比 2015 年下降

40%

单位工业增加值用水量下降幅度 - - 比 2015 年下降

23%

比 2015 年下降

41%

工业固体废物综合利用率(%) 62 65 73 79

1. 规模以上制造业每亿元主营业务收入有效发明专利数=规模以上制造企业有效发明专利数/规模以上制造企业主

营业务收入。

2. 制造业质量竞争力指数是反映我国制造业质量整体水平的经济技术综合指标,由质量水平和发展能力两个方面共

计 12 项具体指标计算得出。

3. 宽带普及率用固定宽带家庭普及率代表,固定宽带家庭普及率=固定宽带家庭用户数/家庭户数。

4. 数字化研发设计工具普及率=应用数字化研发设计工具的规模以上企业数量/规模以上企业总数量(相关数据来源

于 3 万家样本企业,下同)。

5. 关键工序数控化率为规模以上工业企业关键工序数控化率的平均值。
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Made in China 2025《中国制造 2025》

三、战略任务和重点

 实现制造强国的战略目标,必须坚持问题导向,统筹谋划,突出重点;必须凝聚全社会共识,加快制造业转型升级,

全面提高发展质量和核心竞争力。

(一)提高国家制造业创新能力。

 完善以企业为主体、市场为导向、政产学研用相结合的制造业创新体系。围绕产业链部署创新链,围绕创新链配置资

源链,加强关键核心技术攻关,加速科技成果产业化,提高关键环节和重点领域的创新能力。

 加强关键核心技术研发。强化企业技术创新主体地位,支持企业提升创新能力,推进国家技术创新示范企业和企业技

术中心建设,充分吸纳企业参与国家科技计划的决策和实施。瞄准国家重大战略需求和未来产业发展制高点,定期研究制

定发布制造业重点领域技术创新路线图。继续抓紧实施国家科技重大专项,通过国家科技计划(专项、基金等)支持关键

核心技术研发。发挥行业骨干企业的主导作用和高等院校、科研院所的基础作用,建立一批产业创新联盟,开展政产学研

用协同创新,攻克一批对产业竞争力整体提升具有全局性影响、带动性强的关键共性技术,加快成果转化。

 提高创新设计能力。在传统制造业、战略性新兴产业、现代服务业等重点领域开展创新设计示范,全面推广应用以绿

色、智能、协同为特征的先进设计技术。加强设计领域共性关键技术研发,攻克信息化设计、过程集成设计、复杂过程和

系统设计等共性技术,开发一批具有自主知识产权的关键设计工具软件,建设完善创新设计生态系统。建设若干具有世界

影响力的创新设计集群,培育一批专业化、开放型的工业设计企业,鼓励代工企业建立研究设计中心,向代设计和出口自

主品牌产品转变。发展各类创新设计教育,设立国家工业设计奖,激发全社会创新设计的积极性和主动性。

 推进科技成果产业化。完善科技成果转化运行机制,研究制定促进科技成果转化和产业化的指导意见,建立完善科技

成果信息发布和共享平台,健全以技术交易市场为核心的技术转移和产业化服务体系。完善科技成果转化激励机制,推动

事业单位科技成果使用、处置和收益管理改革,健全科技成果科学评估和市场定价机制。完善科技成果转化协同推进机制,

引导政产学研用按照市场规律和创新规律加强合作,鼓励企业和社会资本建立一批从事技术集成、熟化和工程化的中试基

地。加快国防科技成果转化和产业化进程,推进军民技术双向转移转化。

 完善国家制造业创新体系。加强顶层设计,加快建立以创新中心为核心载体、以公共服务平台和工程数据中心为重要

支撑的制造业创新网络,建立市场化的创新方向选择机制和鼓励创新的风险分担、利益共享机制。充分利用现有科技资源,

围绕制造业重大共性需求,采取政府与社会合作、政产学研用产业创新战略联盟等新机制新模式,形成一批制造业创新中

心(工业技术研究基地),开展关键共性重大技术研究和产业化应用示范。建设一批促进制造业协同创新的公共服务平台,

规范服务标准,开展技术研发、检验检测、技术评价、技术交易、质量认证、人才培训等专业化服务,促进科技成果转化

和推广应用。建设重点领域制造业工程数据中心,为企业提供创新知识和工程数据的开放共享服务。面向制造业关键共性

技术,建设一批重大科学研究和实验设施,提高核心企业系统集成能力,促进向价值链高端延伸。 

专栏 1 制造业创新中心(工业技术研究基地)建设工程

 围绕重点行业转型升级和新一代信息技术、智能制造、增材制造、新材料、生物医药等领域创新发展的重大共性需

求,形成一批制造业创新中心(工业技术研究基地),重点开展行业基础和共性关键技术研发、成果产业化、人才培训

等工作。制定完善制造业创新中心遴选、考核、管理的标准和程序。

到 2020 年,重点形成 15 家左右制造业创新中心(工业技术研究基地),力争到 2025 年形成 40 家左右制造业创新

中心(工业技术研究基地)。
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加强标准体系建设。改革标准体系和标准化管理体制,组织实施制造业标准化提升计划,在智能制造等重点领域开展

综合标准化工作。发挥企业在标准制定中的重要作用,支持组建重点领域标准推进联盟,建设标准创新研究基地,协同推

进产品研发与标准制定。制定满足市场和创新需要的团体标准,建立企业产品和服务标准自我声明公开和监督制度。鼓励

和支持企业、科研院所、行业组织等参与国际标准制定,加快我国标准国际化进程。大力推动国防装备采用先进的民用标

准,推动军用技术标准向民用领域的转化和应用。做好标准的宣传贯彻,大力推动标准实施。

 强化知识产权运用。加强制造业重点领域关键核心技术知识产权储备,构建产业化导向的专利组合和战略布局。鼓励

和支持企业运用知识产权参与市场竞争,培育一批具备知识产权综合实力的优势企业,支持组建知识产权联盟,推动市场

主体开展知识产权协同运用。稳妥推进国防知识产权解密和市场化应用。建立健全知识产权评议机制,鼓励和支持行业骨

干企业与专业机构在重点领域合作开展专利评估、收购、运营、风险预警与应对。构建知识产权综合运用公共服务平台。

鼓励开展跨国知识产权许可。研究制定降低中小企业知识产权申请、保护及维权成本的政策措施。

(二)推进信息化与工业化深度融合。

 加快推动新一代信息技术与制造技术融合发展,把智能制造作为两化深度融合的主攻方向;着力发展智能装备和智能

产品,推进生产过程智能化,培育新型生产方式,全面提升企业研发、生产、管理和服务的智能化水平。

 研究制定智能制造发展战略。编制智能制造发展规划,明确发展目标、重点任务和重大布局。加快制定智能制造技术

标准,建立完善智能制造和两化融合管理标准体系。强化应用牵引,建立智能制造产业联盟,协同推动智能装备和产品研

发、系统集成创新与产业化。促进工业互联网、云计算、大数据在企业研发设计、生产制造、经营管理、销售服务等全流

程和全产业链的综合集成应用。加强智能制造工业控制系统网络安全保障能力建设,健全综合保障体系。

 加快发展智能制造装备和产品。组织研发具有深度感知、智慧决策、自动执行功能的高档数控机床、工业机器人、增

材制造装备等智能制造装备以及智能化生产线,突破新型传感器、智能测量仪表、工业控制系统、伺服电机及驱动器和减

速器等智能核心装置,推进工程化和产业化。加快机械、航空、船舶、汽车、轻工、纺织、食品、电子等行业生产设备的

智能化改造,提高精准制造、敏捷制造能力。统筹布局和推动智能交通工具、智能工程机械、服务机器人、智能家电、智

能照明电器、可穿戴设备等产品研发和产业化。

 推进制造过程智能化。在重点领域试点建设智能工厂/数字化车间,加快人机智能交互、工业机器人、智能物流管理、

增材制造等技术和装备在生产过程中的应用,促进制造工艺的仿真优化、数字化控制、状态信息实时监测和自适应控制。

加快产品全生命周期管理、客户关系管理、供应链管理系统的推广应用,促进集团管控、设计与制造、产供销一体、业务

和财务衔接等关键环节集成,实现智能管控。加快民用爆炸物品、危险化学品、食品、印染、稀土、农药等重点行业智能

检测监管体系建设,提高智能化水平。

 深化互联网在制造领域的应用。制定互联网与制造业融合发展的路线图,明确发展方向、目标和路径。发展基于互联

网的个性化定制、众包设计、云制造等新型制造模式,推动形成基于消费需求动态感知的研发、制造和产业组织方式。建

立优势互补、合作共赢的开放型产业生态体系。加快开展物联网技术研发和应用示范,培育智能监测、远程诊断管理、全

产业链追溯等工业互联网新应用。实施工业云及工业大数据创新应用试点,建设一批高质量的工业云服务和工业大数据平

台,推动软件与服务、设计与制造资源、关键技术与标准的开放共享。

 加强互联网基础设施建设。加强工业互联网基础设施建设规划与布局,建设低时延、高可靠、广覆盖的工业互联网。
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加快制造业集聚区光纤网、移动通信网和无线局域网的部署和建设,实现信息网络宽带升级,提高企业宽带接入能力。针

对信息物理系统网络研发及应用需求,组织开发智能控制系统、工业应用软件、故障诊断软件和相关工具、传感和通信系

统协议,实现人、设备与产品的实时联通、精确识别、有效交互与智能控制。

专栏 2 智能制造工程

 紧密围绕重点制造领域关键环节,开展新一代信息技术与制造装备融合的集成创新和工程应用。支持政产学研用联

合攻关,开发智能产品和自主可控的智能装置并实现产业化。依托优势企业,紧扣关键工序智能化、关键岗位机器人替

代、生产过程智能优化控制、供应链优化,建设重点领域智能工厂/数字化车间。在基础条件好、需求迫切的重点地区、

行业和企业中,分类实施流程制造、离散制造、智能装备和产品、新业态新模式、智能化管理、智能化服务等试点示范

及应用推广。建立智能制造标准体系和信息安全保障系统,搭建智能制造网络系统平台。

 到 2020 年,制造业重点领域智能化水平显著提升,试点示范项目运营成本降低 30%,产品生产周期缩短 30%,不

良品率降低 30%。到 2025 年,制造业重点领域全面实现智能化,试点示范项目运营成本降低 50%,产品生产周期缩短

50%,不良品率降低 50%。

 

(三)强化工业基础能力。

 核心基础零部件(元器件)、先进基础工艺、关键基础材料和产业技术基础(以下统称“四基”)等工业基础能力薄弱,

是制约我国制造业创新发展和质量提升的症结所在。要坚持问题导向、产需结合、协同创新、重点突破的原则,着力破解

制约重点产业发展的瓶颈。

 统筹推进“四基”发展。制定工业强基实施方案,明确重点方向、主要目标和实施路径。制定工业“四基”发展指导目录,

发布工业强基发展报告,组织实施工业强基工程。统筹军民两方面资源,开展军民两用技术联合攻关,支持军民技术相互

有效利用,促进基础领域融合发展。强化基础领域标准、计量体系建设,加快实施对标达标,提升基础产品的质量、可靠

性和寿命。建立多部门协调推进机制,引导各类要素向基础领域集聚。

 加强“四基”创新能力建设。强化前瞻性基础研究,着力解决影响核心基础零部件(元器件)产品性能和稳定性的关键

共性技术。建立基础工艺创新体系,利用现有资源建立关键共性基础工艺研究机构,开展先进成型、加工等关键制造工艺

联合攻关;支持企业开展工艺创新,培养工艺专业人才。加大基础专用材料研发力度,提高专用材料自给保障能力和制备

技术水平。建立国家工业基础数据库,加强企业试验检测数据和计量数据的采集、管理、应用和积累。加大对“四基”领域

技术研发的支持力度,引导产业投资基金和创业投资基金投向“四基”领域重点项目。

 推动整机企业和“四基”企业协同发展。注重需求侧激励,产用结合,协同攻关。依托国家科技计划(专项、基金等)

和相关工程等,在数控机床、轨道交通装备、航空航天、发电设备等重点领域,引导整机企业和“四基”企业、高校、科研

院所产需对接,建立产业联盟,形成协同创新、产用结合、以市场促基础产业发展的新模式,提升重大装备自主可控水平。

开展工业强基示范应用,完善首台(套)、首批次政策,支持核心基础零部件(元器件)、先进基础工艺、关键基础材料

推广应用。 

专栏 3 工业强基工程

 开展示范应用,建立奖励和风险补偿机制,支持核心基础零部件(元器件)、先进基础工艺、关键基础材料的首批

次或跨领域应用。组织重点突破,针对重大工程和重点装备的关键技术和产品急需,支持优势企业开展政产学研用联合
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攻关,突破关键基础材料、核心基础零部件的工程化、产业化瓶颈。强化平台支撑,布局和组建一批"四基"研究中心,创

建一批公共服务平台,完善重点产业技术基础体系。

 到 2020 年,40%的核心基础零部件、关键基础材料实现自主保障,受制于人的局面逐步缓解,航天装备、通信装备、

发电与输变电设备、工程机械、轨道交通装备、家用电器等产业急需的核心基础零部件(元器件)和关键基础材料的先

进制造工艺得到推广应用。到 2025 年,70%的核心基础零部件、关键基础材料实现自主保障,80 种标志性先进工艺得

到推广应用,部分达到国际领先水平,建成较为完善的产业技术基础服务体系,逐步形成整机牵引和基础支撑协调互动

的产业创新发展格局。

(四)加强质量品牌建设。

 提升质量控制技术,完善质量管理机制,夯实质量发展基础,优化质量发展环境,努力实现制造业质量大幅提升。鼓

励企业追求卓越品质,形成具有自主知识产权的名牌产品,不断提升企业品牌价值和中国制造整体形象。

 推广先进质量管理技术和方法。建设重点产品标准符合性认定平台,推动重点产品技术、安全标准全面达到国际先进

水平。开展质量标杆和领先企业示范活动,普及卓越绩效、六西格玛、精益生产、质量诊断、质量持续改进等先进生产管

理模式和方法。支持企业提高质量在线监测、在线控制和产品全生命周期质量追溯能力。组织开展重点行业工艺优化行动,

提升关键工艺过程控制水平。开展质量管理小组、现场改进等群众性质量管理活动示范推广。加强中小企业质量管理,开

展质量安全培训、诊断和辅导活动。

 加快提升产品质量。实施工业产品质量提升行动计划,针对汽车、高档数控机床、轨道交通装备、大型成套技术装备、

工程机械、特种设备、关键原材料、基础零部件、电子元器件等重点行业,组织攻克一批长期困扰产品质量提升的关键共

性质量技术,加强可靠性设计、试验与验证技术开发应用,推广采用先进成型和加工方法、在线检测装置、智能化生产和

物流系统及检测设备等,使重点实物产品的性能稳定性、质量可靠性、环境适应性、使用寿命等指标达到国际同类产品先

进水平。在食品、药品、婴童用品、家电等领域实施覆盖产品全生命周期的质量管理、质量自我声明和质量追溯制度,保

障重点消费品质量安全。大力提高国防装备质量可靠性,增强国防装备实战能力。

 完善质量监管体系。健全产品质量标准体系、政策规划体系和质量管理法律法规。加强关系民生和安全等重点领域的

行业准入与市场退出管理。建立消费品生产经营企业产品事故强制报告制度,健全质量信用信息收集和发布制度,强化企

业质量主体责任。将质量违法违规记录作为企业诚信评级的重要内容,建立质量黑名单制度,加大对质量违法和假冒品牌

行为的打击和惩处力度。建立区域和行业质量安全预警制度,防范化解产品质量安全风险。严格实施产品“三包”、产品召

回等制度。强化监管检查和责任追究,切实保护消费者权益。

 夯实质量发展基础。制定和实施与国际先进水平接轨的制造业质量、安全、卫生、环保及节能标准。加强计量科技基

础及前沿技术研究,建立一批制造业发展急需的高准确度、高稳定性计量基标准,提升与制造业相关的国家量传溯源能力。

加强国家产业计量测试中心建设,构建国家计量科技创新体系。完善检验检测技术保障体系,建设一批高水平的工业产品

质量控制和技术评价实验室、产品质量监督检验中心,鼓励建立专业检测技术联盟。完善认证认可管理模式,提高强制性

产品认证的有效性,推动自愿性产品认证健康发展,提升管理体系认证水平,稳步推进国际互认。支持行业组织发布自律

规范或公约,开展质量信誉承诺活动。

 推进制造业品牌建设。引导企业制定品牌管理体系,围绕研发创新、生产制造、质量管理和营销服务全过程,提升内

在素质,夯实品牌发展基础。扶持一批品牌培育和运营专业服务机构,开展品牌管理咨询、市场推广等服务。健全集体商
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标、证明商标注册管理制度。打造一批特色鲜明、竞争力强、市场信誉好的产业集群区域品牌。建设品牌文化,引导企业

增强以质量和信誉为核心的品牌意识,树立品牌消费理念,提升品牌附加值和软实力。加速我国品牌价值评价国际化进程,

充分发挥各类媒体作用,加大中国品牌宣传推广力度,树立中国制造品牌良好形象。

(五)全面推行绿色制造。

 加大先进节能环保技术、工艺和装备的研发力度,加快制造业绿色改造升级;积极推行低碳化、循环化和集约化,提

高制造业资源利用效率;强化产品全生命周期绿色管理,努力构建高效、清洁、低碳、循环的绿色制造体系。

 加快制造业绿色改造升级。全面推进钢铁、有色、化工、建材、轻工、印染等传统制造业绿色改造,大力研发推广余

热余压回收、水循环利用、重金属污染减量化、有毒有害原料替代、废渣资源化、脱硫脱硝除尘等绿色工艺技术装备,加

快应用清洁高效铸造、锻压、焊接、表面处理、切削等加工工艺,实现绿色生产。加强绿色产品研发应用,推广轻量化、

低功耗、易回收等技术工艺,持续提升电机、锅炉、内燃机及电器等终端用能产品能效水平,加快淘汰落后机电产品和技

术。积极引领新兴产业高起点绿色发展,大幅降低电子信息产品生产、使用能耗及限用物质含量,建设绿色数据中心和绿

色基站,大力促进新材料、新能源、高端装备、生物产业绿色低碳发展。

 推进资源高效循环利用。支持企业强化技术创新和管理,增强绿色精益制造能力,大幅降低能耗、物耗和水耗水平。

持续提高绿色低碳能源使用比率,开展工业园区和企业分布式绿色智能微电网建设,控制和削减化石能源消费量。全面推

行循环生产方式,促进企业、园区、行业间链接共生、原料互供、资源共享。推进资源再生利用产业规范化、规模化发展,

强化技术装备支撑,提高大宗工业固体废弃物、废旧金属、废弃电器电子产品等综合利用水平。大力发展再制造产业,实

施高端再制造、智能再制造、在役再制造,推进产品认定,促进再制造产业持续健康发展。

 积极构建绿色制造体系。支持企业开发绿色产品,推行生态设计,显著提升产品节能环保低碳水平,引导绿色生产和

绿色消费。建设绿色工厂,实现厂房集约化、原料无害化、生产洁净化、废物资源化、能源低碳化。发展绿色园区,推进

工业园区产业耦合,实现近零排放。打造绿色供应链,加快建立以资源节约、环境友好为导向的采购、生产、营销、回收

及物流体系,落实生产者责任延伸制度。壮大绿色企业,支持企业实施绿色战略、绿色标准、绿色管理和绿色生产。强化

绿色监管,健全节能环保法规、标准体系,加强节能环保监察,推行企业社会责任报告制度,开展绿色评价。 

专栏 4 绿色制造工程

 组织实施传统制造业能效提升、清洁生产、节水治污、循环利用等专项技术改造。开展重大节能环保、资源综合利

用、再制造、低碳技术产业化示范。实施重点区域、流域、行业清洁生产水平提升计划,扎实推进大气、水、土壤污染

源头防治专项。制定绿色产品、绿色工厂、绿色园区、绿色企业标准体系,开展绿色评价。

 到 2020 年,建成千家绿色示范工厂和百家绿色示范园区,部分重化工行业能源资源消耗出现拐点,重点行业主要污

染物排放强度下降 20%。到 2025 年,制造业绿色发展和主要产品单耗达到世界先进水平,绿色制造体系基本建立。

(六)大力推动重点领域突破发展。

 瞄准新一代信息技术、高端装备、新材料、生物医药等战略重点,引导社会各类资源集聚,推动优势和战略产业快速

发展。

 1.新一代信息技术产业。

 集成电路及专用装备。着力提升集成电路设计水平,不断丰富知识产权(IP)核和设计工具,突破关系国家信息与网
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络安全及电子整机产业发展的核心通用芯片,提升国产芯片的应用适配能力。掌握高密度封装及三维(3D)微组装技术,

提升封装产业和测试的自主发展能力。形成关键制造装备供货能力。

 信息通信设备。掌握新型计算、高速互联、先进存储、体系化安全保障等核心技术,全面突破第五代移动通信(5G)

技术、核心路由交换技术、超高速大容量智能光传输技术、“未来网络”核心技术和体系架构,积极推动量子计算、神经网

络等发展。研发高端服务器、大容量存储、新型路由交换、新型智能终端、新一代基站、网络安全等设备,推动核心信息

通信设备体系化发展与规模化应用。

 操作系统及工业软件。开发安全领域操作系统等工业基础软件。突破智能设计与仿真及其工具、制造物联与服务、工

业大数据处理等高端工业软件核心技术,开发自主可控的高端工业平台软件和重点领域应用软件,建立完善工业软件集成

标准与安全测评体系。推进自主工业软件体系化发展和产业化应用。

 2.高档数控机床和机器人。

 高档数控机床。开发一批精密、高速、高效、柔性数控机床与基础制造装备及集成制造系统。加快高档数控机床、增

材制造等前沿技术和装备的研发。以提升可靠性、精度保持性为重点,开发高档数控系统、伺服电机、轴承、光栅等主要

功能部件及关键应用软件,加快实现产业化。加强用户工艺验证能力建设。

 机器人。围绕汽车、机械、电子、危险品制造、国防军工、化工、轻工等工业机器人、特种机器人,以及医疗健康、

家庭服务、教育娱乐等服务机器人应用需求,积极研发新产品,促进机器人标准化、模块化发展,扩大市场应用。突破机

器人本体、减速器、伺服电机、控制器、传感器与驱动器等关键零部件及系统集成设计制造等技术瓶颈。

3.航空航天装备。

 航空装备。加快大型飞机研制,适时启动宽体客机研制,鼓励国际合作研制重型直升机;推进干支线飞机、直升机、

无人机和通用飞机产业化。突破高推重比、先进涡桨(轴)发动机及大涵道比涡扇发动机技术,建立发动机自主发展工业

体系。开发先进机载设备及系统,形成自主完整的航空产业链。

 航天装备。发展新一代运载火箭、重型运载器,提升进入空间能力。加快推进国家民用空间基础设施建设,发展新型

卫星等空间平台与有效载荷、空天地宽带互联网系统,形成长期持续稳定的卫星遥感、通信、导航等空间信息服务能力。

推动载人航天、月球探测工程,适度发展深空探测。推进航天技术转化与空间技术应用。

 4.海洋工程装备及高技术船舶。大力发展深海探测、资源开发利用、海上作业保障装备及其关键系统和专用设备。推

动深海空间站、大型浮式结构物的开发和工程化。形成海洋工程装备综合试验、检测与鉴定能力,提高海洋开发利用水平。

突破豪华邮轮设计建造技术,全面提升液化天然气船等高技术船舶国际竞争力,掌握重点配套设备集成化、智能化、模块

化设计制造核心技术。

 5.先进轨道交通装备。加快新材料、新技术和新工艺的应用,重点突破体系化安全保障、节能环保、数字化智能化网

络化技术,研制先进可靠适用的产品和轻量化、模块化、谱系化产品。研发新一代绿色智能、高速重载轨道交通装备系统,

围绕系统全寿命周期,向用户提供整体解决方案,建立世界领先的现代轨道交通产业体系。

 6.节能与新能源汽车。继续支持电动汽车、燃料电池汽车发展,掌握汽车低碳化、信息化、智能化核心技术,提升动

力电池、驱动电机、高效内燃机、先进变速器、轻量化材料、智能控制等核心技术的工程化和产业化能力,形成从关键零

部件到整车的完整工业体系和创新体系,推动自主品牌节能与新能源汽车同国际先进水平接轨。

 7.电力装备。推动大型高效超净排放煤电机组产业化和示范应用,进一步提高超大容量水电机组、核电机组、重型燃

气轮机制造水平。推进新能源和可再生能源装备、先进储能装置、智能电网用输变电及用户端设备发展。突破大功率电力
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电子器件、高温超导材料等关键元器件和材料的制造及应用技术,形成产业化能力。

 8.农机装备。重点发展粮、棉、油、糖等大宗粮食和战略性经济作物育、耕、种、管、收、运、贮等主要生产过程使

用的先进农机装备,加快发展大型拖拉机及其复式作业机具、大型高效联合收割机等高端农业装备及关键核心零部件。提

高农机装备信息收集、智能决策和精准作业能力,推进形成面向农业生产的信息化整体解决方案。

 9.新材料。以特种金属功能材料、高性能结构材料、功能性高分子材料、特种无机非金属材料和先进复合材料为发展

重点,加快研发先进熔炼、凝固成型、气相沉积、型材加工、高效合成等新材料制备关键技术和装备,加强基础研究和体

系建设,突破产业化制备瓶颈。积极发展军民共用特种新材料,加快技术双向转移转化,促进新材料产业军民融合发展。

高度关注颠覆性新材料对传统材料的影响,做好超导材料、纳米材料、石墨烯、生物基材料等战略前沿材料提前布局和研

制。加快基础材料升级换代。

 10.生物医药及高性能医疗器械。发展针对重大疾病的化学药、中药、生物技术药物新产品,重点包括新机制和新靶

点化学药、抗体药物、抗体偶联药物、全新结构蛋白及多肽药物、新型疫苗、临床优势突出的创新中药及个性化治疗药物。

提高医疗器械的创新能力和产业化水平,重点发展影像设备、医用机器人等高性能诊疗设备,全降解血管支架等高值医用

耗材,可穿戴、远程诊疗等移动医疗产品。实现生物 3D 打印、诱导多能干细胞等新技术的突破和应用。 

专栏 5 高端装备创新工程

 组织实施大型飞机、航空发动机及燃气轮机、民用航天、智能绿色列车、节能与新能源汽车、海洋工程装备及高技

术船舶、智能电网成套装备、高档数控机床、核电装备、高端诊疗设备等一批创新和产业化专项、重大工程。开发一批

标志性、带动性强的重点产品和重大装备,提升自主设计水平和系统集成能力,突破共性关键技术与工程化、产业化瓶

颈,组织开展应用试点和示范,提高创新发展能力和国际竞争力,抢占竞争制高点。

 到 2020 年,上述领域实现自主研制及应用。到 2025 年,自主知识产权高端装备市场占有率大幅提升,核心技术对

外依存度明显下降,基础配套能力显著增强,重要领域装备达到国际领先水平。

(七)深入推进制造业结构调整。

 推动传统产业向中高端迈进,逐步化解过剩产能,促进大企业与中小企业协调发展,进一步优化制造业布局。

 持续推进企业技术改造。明确支持战略性重大项目和高端装备实施技术改造的政策方向,稳定中央技术改造引导资金

规模,通过贴息等方式,建立支持企业技术改造的长效机制。推动技术改造相关立法,强化激励约束机制,完善促进企业

技术改造的政策体系。支持重点行业、高端产品、关键环节进行技术改造,引导企业采用先进适用技术,优化产品结构,

全面提升设计、制造、工艺、管理水平,促进钢铁、石化、工程机械、轻工、纺织等产业向价值链高端发展。研究制定重

点产业技术改造投资指南和重点项目导向计划,吸引社会资金参与,优化工业投资结构。围绕两化融合、节能降耗、质量

提升、安全生产等传统领域改造,推广应用新技术、新工艺、新装备、新材料,提高企业生产技术水平和效益。

 稳步化解产能过剩矛盾。加强和改善宏观调控,按照“消化一批、转移一批、整合一批、淘汰一批”的原则,分业分类

施策,有效化解产能过剩矛盾。加强行业规范和准入管理,推动企业提升技术装备水平,优化存量产能。加强对产能严重

过剩行业的动态监测分析,建立完善预警机制,引导企业主动退出过剩行业。切实发挥市场机制作用,综合运用法律、经

济、技术及必要的行政手段,加快淘汰落后产能。

 促进大中小企业协调发展。强化企业市场主体地位,支持企业间战略合作和跨行业、跨区域兼并重组,提高规模化、

集约化经营水平,培育一批核心竞争力强的企业集团。激发中小企业创业创新活力,发展一批主营业务突出、竞争力强、
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成长性好、专注于细分市场的专业化“小巨人”企业。发挥中外中小企业合作园区示范作用,利用双边、多边中小企业合作

机制,支持中小企业走出去和引进来。引导大企业与中小企业通过专业分工、服务外包、订单生产等多种方式,建立协同

创新、合作共赢的协作关系。推动建设一批高水平的中小企业集群。

 优化制造业发展布局。落实国家区域发展总体战略和主体功能区规划,综合考虑资源能源、环境容量、市场空间等因

素,制定和实施重点行业布局规划,调整优化重大生产力布局。完善产业转移指导目录,建设国家产业转移信息服务平台,

创建一批承接产业转移示范园区,引导产业合理有序转移,推动东中西部制造业协调发展。积极推动京津冀和长江经济带

产业协同发展。按照新型工业化的要求,改造提升现有制造业集聚区,推动产业集聚向产业集群转型升级。建设一批特色

和优势突出、产业链协同高效、核心竞争力强、公共服务体系健全的新型工业化示范基地。

(八)积极发展服务型制造和生产性服务业。

 加快制造与服务的协同发展,推动商业模式创新和业态创新,促进生产型制造向服务型制造转变。大力发展与制造业

紧密相关的生产性服务业,推动服务功能区和服务平台建设。

 推动发展服务型制造。研究制定促进服务型制造发展的指导意见,实施服务型制造行动计划。开展试点示范,引导和

支持制造业企业延伸服务链条,从主要提供产品制造向提供产品和服务转变。鼓励制造业企业增加服务环节投入,发展个

性化定制服务、全生命周期管理、网络精准营销和在线支持服务等。支持有条件的企业由提供设备向提供系统集成总承包

服务转变,由提供产品向提供整体解决方案转变。鼓励优势制造业企业“裂变”专业优势,通过业务流程再造,面向行业提

供社会化、专业化服务。支持符合条件的制造业企业建立企业财务公司、金融租赁公司等金融机构,推广大型制造设备、

生产线等融资租赁服务。

 加快生产性服务业发展。大力发展面向制造业的信息技术服务,提高重点行业信息应用系统的方案设计、开发、综合

集成能力。鼓励互联网等企业发展移动电子商务、在线定制、线上到线下等创新模式,积极发展对产品、市场的动态监控

和预测预警等业务,实现与制造业企业的无缝对接,创新业务协作流程和价值创造模式。加快发展研发设计、技术转移、

创业孵化、知识产权、科技咨询等科技服务业,发展壮大第三方物流、节能环保、检验检测认证、电子商务、服务外包、

融资租赁、人力资源服务、售后服务、品牌建设等生产性服务业,提高对制造业转型升级的支撑能力。

 强化服务功能区和公共服务平台建设。建设和提升生产性服务业功能区,重点发展研发设计、信息、物流、商务、金

融等现代服务业,增强辐射能力。依托制造业集聚区,建设一批生产性服务业公共服务平台。鼓励东部地区企业加快制造

业服务化转型,建立生产服务基地。支持中西部地区发展具有特色和竞争力的生产性服务业,加快产业转移承接地服务配

套设施和能力建设,实现制造业和服务业协同发展。

(九)提高制造业国际化发展水平。

 统筹利用两种资源、两个市场,实行更加积极的开放战略,将引进来与走出去更好结合,拓展新的开放领域和空间,

提升国际合作的水平和层次,推动重点产业国际化布局,引导企业提高国际竞争力。

 提高利用外资与国际合作水平。进一步放开一般制造业,优化开放结构,提高开放水平。引导外资投向新一代信息技

术、高端装备、新材料、生物医药等高端制造领域,鼓励境外企业和科研机构在我国设立全球研发机构。支持符合条件的

企业在境外发行股票、债券,鼓励与境外企业开展多种形式的技术合作。

 提升跨国经营能力和国际竞争力。支持发展一批跨国公司,通过全球资源利用、业务流程再造、产业链整合、资本市
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场运作等方式,加快提升核心竞争力。支持企业在境外开展并购和股权投资、创业投资,建立研发中心、实验基地和全球

营销及服务体系;依托互联网开展网络协同设计、精准营销、增值服务创新、媒体品牌推广等,建立全球产业链体系,提

高国际化经营能力和服务水平。鼓励优势企业加快发展国际总承包、总集成。引导企业融入当地文化,增强社会责任意识,

加强投资和经营风险管理,提高企业境外本土化能力。

 深化产业国际合作,加快企业走出去。加强顶层设计,制定制造业走出去发展总体战略,建立完善统筹协调机制。积

极参与和推动国际产业合作,贯彻落实丝绸之路经济带和 21 世纪海上丝绸之路等重大战略部署,加快推进与周边国家互

联互通基础设施建设,深化产业合作。发挥沿边开放优势,在有条件的国家和地区建设一批境外制造业合作园区。坚持政

府推动、企业主导,创新商业模式,鼓励高端装备、先进技术、优势产能向境外转移。加强政策引导,推动产业合作由加

工制造环节为主向合作研发、联合设计、市场营销、品牌培育等高端环节延伸,提高国际合作水平。创新加工贸易模式,

延长加工贸易国内增值链条,推动加工贸易转型升级。

四、战略支撑与保障

 建设制造强国,必须发挥制度优势,动员各方面力量,进一步深化改革,完善政策措施,建立灵活高效的实施机制,

营造良好环境;必须培育创新文化和中国特色制造文化,推动制造业由大变强。

(一)深化体制机制改革。

 全面推进依法行政,加快转变政府职能,创新政府管理方式,加强制造业发展战略、规划、政策、标准等制定和实施,

强化行业自律和公共服务能力建设,提高产业治理水平。简政放权,深化行政审批制度改革,规范审批事项,简化程序,

明确时限;适时修订政府核准的投资项目目录,落实企业投资主体地位。完善政产学研用协同创新机制,改革技术创新管

理体制机制和项目经费分配、成果评价和转化机制,促进科技成果资本化、产业化,激发制造业创新活力。加快生产要素

价格市场化改革,完善主要由市场决定价格的机制,合理配置公共资源;推行节能量、碳排放权、排污权、水权交易制度

改革,加快资源税从价计征,推动环境保护费改税。深化国有企业改革,完善公司治理结构,有序发展混合所有制经济,

进一步破除各种形式的行业垄断,取消对非公有制经济的不合理限制。稳步推进国防科技工业改革,推动军民融合深度发

展。健全产业安全审查机制和法规体系,加强关系国民经济命脉和国家安全的制造业重要领域投融资、并购重组、招标采

购等方面的安全审查。

(二)营造公平竞争市场环境。

 深化市场准入制度改革,实施负面清单管理,加强事中事后监管,全面清理和废止不利于全国统一市场建设的政策措

施。实施科学规范的行业准入制度,制定和完善制造业节能节地节水、环保、技术、安全等准入标准,加强对国家强制性

标准实施的监督检查,统一执法,以市场化手段引导企业进行结构调整和转型升级。切实加强监管,打击制售假冒伪劣行

为,严厉惩处市场垄断和不正当竞争行为,为企业创造良好生产经营环境。加快发展技术市场,健全知识产权创造、运用、

管理、保护机制。完善淘汰落后产能工作涉及的职工安置、债务清偿、企业转产等政策措施,健全市场退出机制。进一步

减轻企业负担,实施涉企收费清单制度,建立全国涉企收费项目库,取缔各种不合理收费和摊派,加强监督检查和问责。

推进制造业企业信用体系建设,建设中国制造信用数据库,建立健全企业信用动态评价、守信激励和失信惩戒机制。强化

企业社会责任建设,推行企业产品标准、质量、安全自我声明和监督制度。
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Charting the 10-Year Transformation of Chinese Industry

(三)完善金融扶持政策。

 深化金融领域改革,拓宽制造业融资渠道,降低融资成本。积极发挥政策性金融、开发性金融和商业金融的优势,加

大对新一代信息技术、高端装备、新材料等重点领域的支持力度。支持中国进出口银行在业务范围内加大对制造业走出去

的服务力度,鼓励国家开发银行增加对制造业企业的贷款投放,引导金融机构创新符合制造业企业特点的产品和业务。健

全多层次资本市场,推动区域性股权市场规范发展,支持符合条件的制造业企业在境内外上市融资、发行各类债务融资工

具。引导风险投资、私募股权投资等支持制造业企业创新发展。鼓励符合条件的制造业贷款和租赁资产开展证券化试点。

支持重点领域大型制造业企业集团开展产融结合试点,通过融资租赁方式促进制造业转型升级。探索开发适合制造业发展

的保险产品和服务,鼓励发展贷款保证保险和信用保险业务。在风险可控和商业可持续的前提下,通过内保外贷、外汇及

人民币贷款、债权融资、股权融资等方式,加大对制造业企业在境外开展资源勘探开发、设立研发中心和高技术企业以及

收购兼并等的支持力度。

(四)加大财税政策支持力度。

 充分利用现有渠道,加强财政资金对制造业的支持,重点投向智能制造、“四基”发展、高端装备等制造业转型升级的

关键领域,为制造业发展创造良好政策环境。运用政府和社会资本合作(PPP)模式,引导社会资本参与制造业重大项目

建设、企业技术改造和关键基础设施建设。创新财政资金支持方式,逐步从“补建设”向“补运营”转变,提高财政资金使用

效益。深化科技计划(专项、基金等)管理改革,支持制造业重点领域科技研发和示范应用,促进制造业技术创新、转型

升级和结构布局调整。完善和落实支持创新的政府采购政策,推动制造业创新产品的研发和规模化应用。落实和完善使用

首台(套)重大技术装备等鼓励政策,健全研制、使用单位在产品创新、增值服务和示范应用等环节的激励约束机制。实

施有利于制造业转型升级的税收政策,推进增值税改革,完善企业研发费用计核方法,切实减轻制造业企业税收负担。

(五)健全多层次人才培养体系。

 加强制造业人才发展统筹规划和分类指导,组织实施制造业人才培养计划,加大专业技术人才、经营管理人才和技能

人才的培养力度,完善从研发、转化、生产到管理的人才培养体系。以提高现代经营管理水平和企业竞争力为核心,实施

企业经营管理人才素质提升工程和国家中小企业银河培训工程,培养造就一批优秀企业家和高水平经营管理人才。以高层

次、急需紧缺专业技术人才和创新型人才为重点,实施专业技术人才知识更新工程和先进制造卓越工程师培养计划,在高

等学校建设一批工程创新训练中心,打造高素质专业技术人才队伍。强化职业教育和技能培训,引导一批普通本科高等学

校向应用技术类高等学校转型,建立一批实训基地,开展现代学徒制试点示范,形成一支门类齐全、技艺精湛的技术技能

人才队伍。鼓励企业与学校合作,培养制造业急需的科研人员、技术技能人才与复合型人才,深化相关领域工程博士、硕

士专业学位研究生招生和培养模式改革,积极推进产学研结合。加强产业人才需求预测,完善各类人才信息库,构建产业

人才水平评价制度和信息发布平台。建立人才激励机制,加大对优秀人才的表彰和奖励力度。建立完善制造业人才服务机

构,健全人才流动和使用的体制机制。采取多种形式选拔各类优秀人才重点是专业技术人才到国外学习培训,探索建立国

际培训基地。加大制造业引智力度,引进领军人才和紧缺人才。

 
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Made in China 2025《中国制造 2025》

(六)完善中小微企业政策。

 落实和完善支持小微企业发展的财税优惠政策,优化中小企业发展专项资金使用重点和方式。发挥财政资金杠杆撬动

作用,吸引社会资本,加快设立国家中小企业发展基金。支持符合条件的民营资本依法设立中小型银行等金融机构,鼓励

商业银行加大小微企业金融服务专营机构建设力度,建立完善小微企业融资担保体系,创新产品和服务。加快构建中小微

企业征信体系,积极发展面向小微企业的融资租赁、知识产权质押贷款、信用保险保单质押贷款等。建设完善中小企业创

业基地,引导各类创业投资基金投资小微企业。鼓励大学、科研院所、工程中心等对中小企业开放共享各种实(试)验设

施。加强中小微企业综合服务体系建设,完善中小微企业公共服务平台网络,建立信息互联互通机制,为中小微企业提供

创业、创新、融资、咨询、培训、人才等专业化服务。

(七)进一步扩大制造业对外开放。

 深化外商投资管理体制改革,建立外商投资准入前国民待遇加负面清单管理机制,落实备案为主、核准为辅的管理模

式,营造稳定、透明、可预期的营商环境。全面深化外汇管理、海关监管、检验检疫管理改革,提高贸易投资便利化水平。

进一步放宽市场准入,修订钢铁、化工、船舶等产业政策,支持制造业企业通过委托开发、专利授权、众包众创等方式引

进先进技术和高端人才,推动利用外资由重点引进技术、资金、设备向合资合作开发、对外并购及引进领军人才转变。加

强对外投资立法,强化制造业企业走出去法律保障,规范企业境外经营行为,维护企业合法权益。探索利用产业基金、国

有资本收益等渠道支持高铁、电力装备、汽车、工程施工等装备和优势产能走出去,实施海外投资并购。加快制造业走出

去支撑服务机构建设和水平提升,建立制造业对外投资公共服务平台和出口产品技术性贸易服务平台,完善应对贸易摩擦

和境外投资重大事项预警协调机制。

(八)健全组织实施机制。

 成立国家制造强国建设领导小组,由国务院领导同志担任组长,成员由国务院相关部门和单位负责同志担任。领导小

组主要职责是:统筹协调制造强国建设全局性工作,审议重大规划、重大政策、重大工程专项、重大问题和重要工作安排,

加强战略谋划,指导部门、地方开展工作。领导小组办公室设在工业和信息化部,承担领导小组日常工作。设立制造强国

建设战略咨询委员会,研究制造业发展的前瞻性、战略性重大问题,对制造业重大决策提供咨询评估。支持包括社会智库、

企业智库在内的多层次、多领域、多形态的中国特色新型智库建设,为制造强国建设提供强大智力支持。建立《中国制造

2025》任务落实情况督促检查和第三方评价机制,完善统计监测、绩效评估、动态调整和监督考核机制。建立《中国制

造 2025》中期评估机制,适时对目标任务进行必要调整。

 各地区、各部门要充分认识建设制造强国的重大意义,加强组织领导,健全工作机制,强化部门协同和上下联动。各

地区要结合当地实际,研究制定具体实施方案,细化政策措施,确保各项任务落实到位。工业和信息化部要会同相关部门

加强跟踪分析和督促指导,重大事项及时向国务院报告。