Implementation Opinions of the General Office of the State Council on Accelerating Scenario Cultivation and Openness to Promote Large-Scale Application of New Scenarios

National Office Document No. [2025] 37

People's Governments of all provinces, autonomous regions, and municipalities directly under the central government; all ministries and commissions of the State Council and their directly affiliated institutions:

Scenarios are specific contexts designed for the systematic validation of new technologies, new products, and new business models in their industrial applications, as well as for the supporting infrastructure, business models, and institutional policies. They serve as a bridge that connects technology with industry, links research and development with the market, and constitute an important platform for promoting the integrated development of technological and industrial innovation. Scenarios play a crucial role in accelerating the large-scale commercialization of new technologies and products. To speed up scenario cultivation and opening-up and to promote the large-scale application of new scenarios, with the approval of the State Council, we hereby put forward the following guidelines.

I. General Requirements

Guided by Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, we will thoroughly implement the spirit of the 20th National Congress of the Party and the resolutions of successive plenary sessions of the 20th Central Committee. We will fully, accurately, and comprehensively embrace the new development philosophy, adhering to innovation-driven development, reform-led advancement, tailored approaches suited to local conditions, safe and orderly progress, systematic promotion, and integrated development. We will fully leverage China’s advantages as a super-large-scale market and its wealth of application scenarios, supporting the construction of a number of comprehensive major scenarios, industry-specific integrated scenarios, and high-value, niche scenarios. We will expand the supply of production, work, and living scenarios, promote the opening up of scenario resources, facilitate equitable and efficient allocation of these resources, accelerate the large-scale application of new scenarios, and establish a path characterized by “technological breakthroughs—scenario validation—industrial application—system upgrading.” This will provide strong support for speeding up the cultivation and development of new-quality productive forces and promoting high-quality economic and social development.

II. Accelerate the cultivation and expansion of economic and social application scenarios.

(1) Develop a batch of application scenarios in new fields and new tracks.

Digital economy sector. Deeply tap into the potential of data as a key production factor, support technological innovation in areas such as data analysis and mining, data circulation and utilization, and security protection, and enrich the supply of data products and services. Explore innovative application scenarios—including the metaverse, virtual reality, intelligent computing power, and robotics—in fields like office work, social interaction, consumption, and entertainment, thereby promoting the deep integration of the real economy and the digital economy.

Artificial intelligence field. Strengthen efforts to tackle and promote the application of critical core technologies, accelerate the cultivation and opening up of high-value application scenarios, and better meet the development needs in various fields such as science and technology, industry, consumption, people’s livelihoods, governance, and global cooperation.

All-domain unmanned system. Promote the application and standard-setting of unmanned systems across all domains—air, land, and sea—and encourage the development of application scenarios covering all spatial domains, including cultural tourism, government services, logistics, and satellite services. Expand the application scenarios for unmanned systems to include industrial production, urban planning and construction management, integrated three-dimensional transportation, public services, security protection, and agricultural production. Prudently and orderly expand application scenarios in areas such as the low-altitude economy.

Biotechnology field. Promote the widespread application of biotechnology in innovative scenarios across industries such as new materials, construction, energy, and environmental protection. Focus on opening up application scenarios including bio-based material substitution, low-carbon conversion of bioenergy, and green preparation of natural products, thereby building an integrated ecosystem for the development of the biotechnology industry.

Clean energy sector. Promote the open application of clean energy in sectors such as railways, public transportation, sanitation, heavy-duty trucks, agricultural machinery, and logistics; build clean-energy vehicle transport corridors; simultaneously deploy energy supply stations; and create integrated, collaborative application scenarios across the entire clean-energy industry chain. Accelerate the clean and low-carbon transformation of the energy sector. Innovate a range of application scenarios—including digital and intelligent energy production and operation management, smart grids, direct supply of green electricity, virtual power plants, and vehicle-to-grid interaction—and advance the development of international standards and certification mechanisms for green energy.

Marine development field. Promote the development and opening up of scenarios including deep-sea exploration, deep-sea mining, offshore aquaculture in deep and distant waters, marine engineering equipment, marine electronic information, and marine biomedicine, and establish a number of innovation hubs for deep-sea science and technology.

(2) Develop a batch of new application scenarios for industrial transformation and upgrading.

Manufacturing sector. Focus on the application of core technologies such as intelligent manufacturing, green manufacturing, service-oriented manufacturing, industrial biotechnology, and industrial intelligence. Innovate application scenarios including flexible production lines, smart factories, green factories, high-standard digital parks, and zero-carbon parks. Support key manufacturing enterprises in opening up their application scenarios to independent foundational software and industrial software products, and select and cultivate typical application scenarios for vertical large-scale models in the industrial sector. Encourage local governments and enterprises to develop application scenarios for productive service industries such as industrial design, pilot testing and verification, and inspection and testing.

The transportation sector. Promote the application of new technologies, innovate in areas such as intelligent traffic management, vehicle-to-everything (V2X) networks, and smart dispatching, optimize urban transportation structures, develop new applications for the transshipment of air cargo on international flights, strengthen urban freight transit functions, and enhance transportation efficiency while ensuring safety.

Smart logistics field. Accelerate the development of smart highways, smart port and shipping systems, smart logistics hubs, and smart logistics parks. Explore new logistics models that integrate with emerging technologies and business formats, as well as new smart intermodal transport scenarios involving rail-road, water-water, and rail-water connections. Strengthen the application of integrated intelligent warehousing and distribution systems, digital twins, and other advanced technologies, and innovate in application scenarios such as unmanned transportation, unmanned loading and unloading, unmanned delivery, and smart warehousing.

Modern agricultural sector. Accelerate the development of application scenarios in the seed industry, strengthen scientific and technological support and guidance in areas such as design-based breeding and biological breeding, and launch a batch of digital application scenarios covering breeding, seed production and propagation, and expanded propagation, thereby enhancing the level of animal and plant breeding. Support the construction of specialized seed industry application scenarios tailored to arid regions, cold regions, plateaus, and saline-alkali lands. Launch a series of smart agricultural (pastoral and fishery) farm application scenarios, innovate application scenarios across the entire industrial chain—from seed production and breeding to livestock and aquaculture and food processing—and drive the digital transformation and empowerment of the livestock and fishery sectors by focusing on areas such as feed, animal husbandry, distribution, and supply-chain finance.

(3) Launch a batch of application scenarios in various industry sectors.

Emergency management field. Focus on digital scenarios within the emergency rescue system, strengthen the innovative application of technologies and equipment such as intelligent sensing, unmanned rescue, and aerial rescue, and enhance capabilities in intelligent disaster monitoring and early warning, emergency command and communication, emergency response and rescue operations, and emergency supplies provision.

Mining safety field. By integrating technologies such as cloud computing, the industrial internet, and autonomous driving, we can achieve intelligent sensing, intelligent decision-making, automated execution, and comprehensive control, thereby enhancing the automation level across the entire process of mine safety production. This will help build high-level, intelligent application scenarios for mine safety production characterized by real-time perception of production conditions, visualized and controllable processes, measurable and preventable risks, and adjustable and configurable resource elements.

Smart water conservancy field. Promote the opening of application scenarios such as integrated monitoring and sensing across “sky, land, water, and engineering,” construction and management of water network projects, and patrols of rivers, lakes, and reservoirs, thereby enhancing capabilities in intelligent flood prevention within river basins, smart scheduling of water networks, intelligent three-dimensional supervision of rivers, lakes, and reservoirs, and intelligent operation and management of water conservancy projects.

Construction safety field. Integrating technologies such as intelligent risk early warning, autonomous inspection by unmanned equipment, substitution of high-risk operations, and smart monitoring, we are building application scenarios including smart construction sites and dynamic digital twin models for construction. This will enhance our ability to dynamically identify and intelligently address safety hazards, and promote the organic integration of human-based and technology-based prevention measures.

Forestry and grassland sector. Strengthen the integrated, three-dimensional application of technologies such as low-altitude and remote sensing, and launch a range of application scenarios including forest, grassland, wetland, and desert surveys and monitoring, ecological restoration, ecological conservation, and disaster prevention and control. Enhance monitoring and patrol efforts for national parks, nature reserves, and natural parks, and accelerate the improvement of management and protection standards.

(4) Innovative Comprehensive Application Scenarios for Social Governance Services

Government service sector. Promote the development of smart government services such as intelligent appointment booking, smart identity authentication, intelligent approval, and intelligent supervision. Coordinate and carry out scenario planning, and explore innovative public service scenarios for groups including college graduates, workers in new forms of employment, and migrant workers, as well as digital social security scenarios and scenarios reflecting enterprise labor demands.

Smart city sector. Focusing on smart communities, municipal transportation, urban intelligent hubs, urban operations management, and public services, we will advance the construction of new urban infrastructure, innovate digital transformation scenarios across the entire urban landscape, and accelerate the rollout of a batch of application scenarios in key areas.

Rural construction field. Open up a batch of scenarios for building beautiful and harmonious rural areas and digital villages, enhance the level of information technology application, and improve the system of standards for smart governance and services at the grassroots level.

(5) Enrich application scenarios in the field of people's livelihood.

Healthcare sector. Promote the integrated application of next-generation information technologies such as big data, the Internet of Things, and brain-computer interfaces, as well as intelligent devices like medical robots, and innovate healthcare application scenarios including health consultations, diagnostic guidance, auxiliary diagnosis, telemedicine, and medication review.

The field of elderly care, disability assistance, and childcare. Develop application scenarios such as innovative service robots, smart wearable devices, remote terminal service systems, and online family doctors and pharmacists, thereby creating integrated lifestyle service ecosystems that combine technology-assisted disability support, domestic services, childcare and caregiving, rehabilitation medicine, and health services.

Culture and tourism sector. Accelerate the promotion and application of digital technologies in the cultural and tourism sectors, strengthen the integration of diverse business models such as digital performing arts, digital art, and immersive experiences, and build digital cultural and tourism application scenarios that seamlessly combine fast-track access, reservation and booking systems, intelligent tour guides, visitor flow management, and virtual tours.

Cross-industry integration in the consumer sector. Strengthen cross-sectoral integration of consumption in areas such as commerce, culture, tourism, sports, health, and transportation. Foster application scenarios that integrate technologies like the Internet, fifth-generation mobile communications (5G), and virtual reality. Expand immersive and interactive experiences, and create a batch of new consumption scenarios with broad appeal and high visibility. Encourage cities with suitable conditions to establish experiential consumption venues such as smart neighborhoods and smart commercial districts.

III. Deeply promote scenario openness and fair and efficient resource allocation.

(6) Increase the openness of various scenarios. Cultivate and open up comprehensive, large-scale application scenarios, strengthen cross-sector and cross-regional collaboration, emphasize the opening of scenarios across the entire industrial value chain, and promote the upgrading of key industrial systems. All regions should deeply explore scenario resources, tailor early-stage scenarios to local conditions, and open up distinctive, regionally-specific comprehensive scenarios. Relevant authorities should focus on the application of new technologies and products, drive the opening of scenarios in their respective fields, and explore innovative regulatory frameworks. State-owned enterprises—especially central enterprises—should proactively open up scenarios in their core business areas, attract participation from private enterprises, small and medium-sized enterprises, and research institutions, and enhance collaborative sharing of these scenarios. Private enterprises should be encouraged to actively identify market demands and explore the development of new scenarios.

(7) Promote the fair and efficient allocation of scenario resources. Improve the rules for allocating scenario resources and refine the mechanisms for matching supply and demand in various scenarios. Promote fair and efficient participation of all types of entities in the allocation, development, and utilization of scenario resources, and strictly prohibit the imposition of discriminatory restrictions based on region, past performance, scale, or enterprise type. Further leverage the role of the credit system to enhance the efficiency of scenario resource allocation and reduce institutional transaction costs. Better harness the guiding role of major national projects in fostering and opening up scenario opportunities, and accelerate the development and opening of key scenarios in sectors such as railways, water conservancy, and energy, as well as major events like sports games and expos. Speed up the cultivation of relevant intermediary organizations, elevate the level of professional service provision, and promote the efficient allocation of scenario resources.

(8) Promote coordinated reforms in market access, application scenarios, and key factors. Jointly promote the optimization of the market access environment, the cultivation and opening up of application scenarios, and the innovative allocation of production factors, thereby strengthening institutional support for fostering the development of new-quality productivity. Improve market access systems for new business models and emerging fields, and optimize the market access environment. Explore innovative approaches to market-based allocation of new factors such as aerospace, deep sea resources, and spectrum-orbit resources, and leverage the supporting roles of factors including technology, data, talent, and capital. Encourage financial institutions of all types to provide financial services in line with their respective functional roles and positioning. Based on the needs and characteristics of scenario deployment, ensure an appropriate supply of land resources. Enhance the provision and guarantee of public data services. Implement talent support policies and innovate talent evaluation mechanisms. Attract enterprises, universities, and research institutes to participate in the construction of major application scenarios and the industrialization of scientific and technological achievements.

(9) Leverage the experimental role of scenarios in institutional development. Place great emphasis on leveraging scenarios to validate institutional policies, management rules, and regulatory systems in various reform pilot programs. Continuously refine the relevant standards system and conduct regulatory stress tests under specific scenarios. By fostering and opening up scenarios for testing and verification, we will support the enhancement of institutional design standards and promote the sound development and improvement of related laws and regulations.

IV. Enhance the Capability to Ensure Application Scenarios

(10) Strengthen policy support. Strengthen the coordinated synergy of various policies, support innovative scenarios in new business models and emerging fields, and amplify the policy effects. Leverage the supporting role of government procurement to promote the adoption of new technologies, new products, and new scenarios. Enhance the coordination and integration of scenario cultivation and opening-up initiatives with various innovation-support policies, including those for first-of-its-kind equipment, first-batch materials, and first-version software. When formulating various plans, closely integrate them with scenario cultivation and opening-up efforts. Through relevant central funds, provide support for the complementary infrastructure of major scenarios that meet the eligibility criteria, and simultaneously advance “soft infrastructure” development.

(11) Improve the management system. We must adhere to the principle of both “giving sufficient freedom” and “maintaining effective regulation.” Based on actual needs, we should promptly study and refine relevant management regulations, encourage innovation in scenario-based management systems, and explore a due-diligence and liability-exemption management model. We should also improve safety risk control measures for new scenarios, prevent regulatory loopholes, and ensure that these scenarios develop in a safe and orderly manner. We need to strengthen overall planning and coordination to avoid redundant construction and guard against practices that use scenarios as a pretext to fragment the market. Furthermore, we should align the application scenarios of new technologies with the goal of achieving high-quality and full employment, fostering the creation of more new occupations and job opportunities. We must enhance monitoring, assessment, and preventive measures for employment risks, and make concerted efforts to minimize the impact on vulnerable groups such as migrant workers.

V. Strengthen Implementation and Organization

Relevant local authorities and departments shall, under the centralized and unified leadership of the Party Central Committee, strengthen coordination and cooperation, intensify efforts to cultivate and open up application scenarios, and ensure rigorous implementation tailored to local conditions. Government agencies, public institutions, and state-owned enterprises should play a leading role through exemplary practices. The National Development and Reform Commission, together with relevant parties, shall step up guidance and overall coordination, promote scenario cultivation and opening-up through reform and innovation, put forward clearer and more actionable requirements, fully leverage the policy tools associated with application scenarios, release lists of application scenario projects in batches, organize and implement several major projects centered on the development of comprehensive and significant application scenarios, timely summarize experiences, carry out effective publicity and promotion, and foster a positive atmosphere. Major issues shall be reported and submitted in a timely manner according to established procedures.

General Office of the State Council

November 2, 2025

(This document is publicly released.)

Source: China Government Network, Official WeChat Account