Promoting High-Quality Development of the Yangtze River Economic Belt through Regional Synergy and Integration

The Yangtze River Economic Belt broadly encompasses the natural elements of the entire basin—the upper, middle, and lower reaches, the network of main streams and tributaries, both banks of the river, as well as lakes and wetlands—while also intertwining multiple dimensions such as waterway transport, port construction, industrial layout, and urban development, forming a closely linked and interdependent comprehensive system. Given the holistic, systematic, and indivisible nature of the basin’s ecology, public issues within the basin often transcend the limits of any single administrative division and cannot be addressed solely by the governance capacity of a single local government. Therefore, promoting high-quality development of the Yangtze River Economic Belt is essentially a holistic project that requires comprehensive consideration and systematic planning. Facing this challenge, it is necessary to break down traditional administrative barriers, departmental divisions, and sectoral boundaries, adopt cross-regional comprehensive governance strategies, and deeply coordinate the complex relationships between upstream and downstream, main streams and tributaries, and urban and rural areas. This means shifting from the traditional governance model bounded by administrative divisions, through effective integration and optimal allocation of resources, establishing a cooperative philosophy of “symbiotic co-prosperity and coordinated advancement,”[1]1 “Symbiotic co-prosperity and coordinated advancement” (共生共荣、协同并进) is a parallel four-character phrase typical of Chinese political rhetoric, emphasizing mutual benefit and joint progress. and promoting complementary advantages and coordinated development among the upper, middle, and lower reaches.

长江经济带广泛涵盖了上下游、干支流网络、河岸两侧以及湖泊、湿地等全流域的自然要素，同时交织着水路交通、港口建设、产业布局与城市发展等多个维度，形成一个紧密相连、互为依存的综合系统。鉴于流域生态的整体性、系统性以及不可分割性特征，流域内的公共问题往往超越单一行政区划的限制，也非单一地方政府治理能力所能治理应对。因此，推动长江经济带高质量发展，本质上是一个需全面考量、系统规划的整体性工程。面对这一挑战，需要打破传统行政壁垒、部门隔阂及行业界限，采取跨区域的综合治理策略，深入协调上游与下游、干流与支流、城市与乡村之间的复杂关系。这意味着需转变以行政区划为界限的传统治理模式，通过资源的有效整合与优化配置，树立“共生共荣、协同并进”的合作理念，促进上中下游地区间的优势互补与协同发展。

General Secretary Xi Jinping pointed out: “We must take strengthening regional synergy and integration as the focal point. Provinces and cities along the river should adhere to inter-provincial consultation, joint ecological governance, region-wide joint construction, and shared development, enhance the connectivity of regional transport, the uniformity of policies, the consistency of rules, and the synergy of implementation, steadily advance the construction of an ecological community and a community of shared interests, and promote coordinated regional development.” Currently, the Yangtze River Economic Belt is at a critical period of transitioning from cost-driven scaled expansion to innovation-driven high-quality development. This transformation urgently requires shifting from the traditional mindset of “competitive opposition” to an innovative cooperation model of “win-win cooperation,” treating regional synergy and integrated development as the intrinsic driving force and core pathway for promoting high-quality development.

习近平总书记指出：“要坚持把强化区域协同融通作为着力点，沿江省市要坚持省际共商、生态共治、全域共建、发展共享，增强区域交通互联性、政策统一性、规则一致性、执行协同性，稳步推进生态共同体和利益共同体建设，促进区域协调发展。”当前，长江经济带正处于从依赖成本驱动的规模化扩张向创新驱动的高质量发展模式转型的关键时期。这一转变迫切要求从“竞争对立”的传统思维转向“合作共赢”的创新合作模式，将区域协同与融合发展视为推动高质量发展的内在动力与核心路径。

Shortcomings and Problems in the Regional Synergy and Integrated Development of the Yangtze River Economic Belt

长江经济带在区域协同融通发展上存在的不足与问题

First, insufficient industrial synergy development. Because the Yangtze River Economic Belt covers a vast area, the level of economic development and the maturity of industrial structures vary among regions, and there are also distinct regional characteristics and differences in resource distribution and industrial division of labor. While this diversity brings vitality to regional development, it also leads to a certain degree of homogeneity in industrial structures and problems of insufficient connection or even disconnection between upstream and downstream industrial chains. Problems such as uneven regional industrial development speed are relatively serious. In 2023, the economic aggregate of the Yangtze River Delta region (including Shanghai, Jiangsu, Zhejiang, and Anhui) exceeded the 30 trillion yuan mark, demonstrating strong economic vitality and growth potential. Although the Yangtze River Delta, as the leader of the Yangtze River Economic Belt and China’s manufacturing sector, shows a powerful economic engine, its manufacturing industry also faces urgent needs for transformation and upgrading and the arduous task of industrial structure optimization. On the path to high-quality development, it is necessary to overcome the irrational factors in the existing industrial structure. At the same time, the middle and upper reaches of the Yangtze River Economic Belt, due to historical reasons leading to a relatively weak industrial base and an incomplete industrial policy system, face a series of challenges, such as poor coordination between upstream and downstream industrial chains, a generally low level of industrial hierarchy, and insufficient infrastructure and supporting service systems, all of which severely restrict the economic development potential and competitiveness of these areas. From the perspective of manufacturing layout, the Yangtze River Economic Belt shows distinct geographic characteristics of “dense in the east, sparse in the west” and “strong in the east, weak in the west,”[2]2 “Dense in the east, sparse in the west” and “strong in the east, weak in the west” (东密西疏、东强西弱) are descriptive four-character phrases indicating spatial imbalance. and this uneven development situation may persist for some time to come. Notably, with the acceleration of industrial transfer, labor-intensive and capital-intensive manufacturing industries in Shanghai, Zhejiang, and other places, such as traditional industries like textiles, ferrous and non-ferrous metal smelting, are gradually moving to the middle and upper reaches. This is both an opportunity and a challenge, requiring the middle and upper reaches to accelerate their capacity to undertake and optimize the industrial ecological environment. However, the clustering degree of the middle and upper reaches in key industries such as chemical fibers, chemical manufacturing, and transportation is still low, the development foundation is not solid, and there is a lack of core competitive cooperative regions to lead and drive the industrial upgrading of the entire belt. Therefore, it is necessary to increase efforts to promote the transfer of relevant industries from developed areas such as Shanghai and Zhejiang to the middle and upper reaches with cooperation potential, so as to promote inter-regional industrial synergy development, strengthen the foundation and agglomeration effect of these weak industries in the middle and upper reaches, and thus promote the deep integration and coordinated progress of manufacturing in all provinces and cities within the Yangtze River Economic Belt.

其一，产业协同发展不够。由于长江经济带覆盖地域广阔，各区域间经济发展水平和产业结构的成熟程度具有不均衡性，同时资源分布、产业分工等方面也存在明显的地域特色与差异。这种多样性虽为区域发展带来了活力，但也导致了产业结构上一定程度的同质化现象，以及产业链上下游之间衔接不够紧密，甚至脱节的问题。区域产业发展速度不均衡等问题较为严重。2023年，长三角区域（涵盖上海、江苏、浙江及安徽四省市）经济总量成功跨越30万亿元大关，彰显了强劲的经济活力与增长潜力。尽管长三角区域作为长江经济带及中国制造业的领头羊，展现了强大的经济引擎作用，但其制造业同样面临着转型升级的紧迫需求以及产业结构优化的艰巨任务。在追求高质量发展的道路上，要克服既有产业结构中的不合理因素。与此同时，长江经济带的中、上游地区，由于历史原因导致的产业基础相对薄弱，加之产业政策体系尚不健全，正面临着一系列挑战，如产业链上下游协同不畅，产业层次整体偏低，以及基础设施与配套服务体系的不足，这些都严重制约了这些地区的经济发展潜力和竞争力。从制造业布局来看，长江经济带呈现出明显的“东密西疏”“东强西弱”的地域特征，这种不均衡的发展现状在未来一段时间内或将持续存在。值得注意的是，随着产业转移的加速推进，上海、浙江等地的劳动与资本密集型制造业，如纺织业、黑色及有色金属冶炼等传统产业，正逐渐向中上游地区转移，这既是机遇也是挑战，要求中上游地区加快提升自身承接能力，优化产业生态环境。然而，中上游区域在化学纤维、化学制造及交通运输等关键行业上的集聚程度仍然较低，发展基础尚不牢固，且缺乏具有核心竞争力的合作区域来引领和带动整个区域的产业升级。因此，需要加大力度推动上海、浙江等发达地区的相关产业向具有合作潜力的中上游地区进行转移，以促进区域间的产业协同发展。增强中上游地区这些薄弱产业的基础建设与集聚效应，从而促进长江经济带内各省市制造业的深度融合、协同共进。

Second, insufficient urban synergy development. According to the indicator of the regional synergy development capability of the Yangtze River Economic Belt, the Yangtze River Delta region far surpasses other regions of the belt. However, the overall synergy development capability scores of other cities in the Yangtze River Economic Belt are relatively low, showing a trend of high in the east and low in the west, high in provincial capitals and cities along the river and coast, with a prominent “core–periphery” structure.[3]3 “Core–periphery” structure (核心—边缘结构) is a geographic-economic concept referring to a spatial pattern where a central core dominates less developed peripheral areas. In spatial distribution, the synergy development capabilities of cities in the upper, middle, and lower reaches of the Yangtze River Economic Belt differ significantly. The lower reaches, as a concentrated area of high synergy capability, take Shanghai as the core, supplemented by cities such as Nanjing and Hangzhou, forming an integrated development trend with balanced synergy levels among cities. The middle reaches are led by provincial capitals such as Wuhan, Changsha, and Nanchang, with relatively strong synergy areas distributed along the Beijing-Guangzhou and Beijing-Kowloon railway lines, but overall improvement is still needed. The upper reaches are generally weak, with only a few cities such as Chongqing and Chengdu performing prominently, while the synergy capabilities of the remaining cities are generally low. Overall, the development levels among city clusters within the Yangtze River Economic Belt are uneven, an open cooperation pattern has not yet been effectively formed, spatial connections are hindered, synergy is difficult, and the long-term effectiveness of regional overall planning and coordination needs to be strengthened.

其二，城市协同发展不够。根据长江经济带区域协同发展能力指标显示，长三角地区遥遥领先长江经济带其他区域。但是，长江经济带其他城市总体协同发展能力得分较低，呈现东高西低、省会城市和沿江沿海城市较高的态势，“核心—边缘”结构特征鲜明。空间分布上，长江经济带上、中、下游城市的协同发展能力差异显著。下游地区作为高协同发展能力的集中区域，以上海为核心，辅以南京、杭州等城市，形成一体化发展态势，城市间协同水平均衡。中游地区则以武汉、长沙、南昌等省会城市为引领，协同能力较强区域沿京广线和京九线分布，但整体仍有待提升。上游地区则普遍较弱，仅重庆、成都等少数城市表现突出，其余城市协同能力普遍偏低。总体来看，长江经济带内各城市群间发展水平不均，开放合作格局尚未有效形成，空间联系受阻，协同难度较大，区域统筹联动的长效性尚需加强。

Third, insufficient ecological and environmental synergy development. First, the entire Yangtze River basin faces a certain degree of fragmentation along territorial and sectoral lines, mainly reflected in the lack of an efficient high-level coordination mechanism. The cost of inter-provincial communication and coordination is high, leading to insufficient cross-departmental and cross-regional linkage and cooperation, which in turn causes some conflicts and contradictions in key areas such as water resource utilization and ecological compensation. Second, the ecological and environmental condition of the entire basin is not yet sufficiently clear, and the assessment of various ecological hazards and environmental risks is inadequate. To better protect the ecological environment of the Yangtze River, it is urgent to establish a complete indicator system and basic database to comprehensively and accurately monitor and assess the ecological and environmental status of the basin, providing a basis for scientific decision-making. Finally, the cross-border governance mechanism and institutional arrangements are not sufficiently sound. Cross-departmental and cross-regional linkage and synergy remain weak, and the traditional fragmented governance model has not yet been fundamentally transformed. This causes cooperation within the basin to easily become formalistic and lacking in substance, while also lacking a hard constraint mechanism to ensure the effective implementation of governance measures.

其三，生态环境协同发展不够。首先，长江全流域正面临着一定程度的条块分割挑战，这主要体现在缺乏一个高效的高层次协调机制。省际间的沟通协同成本较高，导致跨部门、跨区域的联动合作不足，进而在水资源利用、生态补偿等关键领域引发了一些矛盾与冲突。其次，全流域的生态环境状况尚不够明朗，各类生态隐患与环境风险的评估工作存在不足。为了更好地保护长江生态环境，亟需构建一套完善的指标体系与基础数据库，以便全面、准确地监测和评估流域内的生态环境状况，为科学决策提供依据。最后，跨界治理机制与制度安排不够健全。跨部门、跨区域间的联动协同性依然较弱，传统的分割治理模式尚未得到根本性转变。这导致流域内的合作容易流于形式，缺乏实质性，同时也缺乏硬性的约束机制来确保治理措施的有效执行。

Fourth, insufficient synergy in scientific and technological innovation. First, a lack of high-end innovation capability. Comparing the Yangtze River Economic Belt with world-class city clusters such as Tokyo and New York, there remains a significant gap in the innovation strength of innovation entities such as universities and research institutions, as well as in innovation output capacity in terms of scientific publications and patents within the Yangtze River Economic Belt, exposing shortcomings in high-end innovation capability. Second, uneven innovation output. The middle and lower reaches of the Yangtze River, especially the Yangtze River Delta region, have two National Science Centers,[4]4 National Science Centers (国家科学中心) are high-level research institutions designated by the Chinese government to concentrate resources for frontier scientific research. a relatively large number of high-level research institutions, closer international scientific and technological exchanges, and far surpass the upper reaches in basic research and applied research capabilities. In addition, the middle and lower reaches have a complete range of well-functioning innovation service institutions, such as science and technology intermediaries, financial institutions, legal services, patent services, and accounting firms; and they have a large number of strong carriers such as maker spaces, incubators, accelerators, science parks, and technology transfer markets, so the rate of transformation of scientific and technological achievements in the middle and lower reaches also far exceeds that of the upper reaches. Third, the flow of innovation factors is not smooth. The Yangtze River Economic Belt faces the dual constraints of high institutional transaction costs and local protectionism, resulting in a fragmented innovation ecosystem, obstacles to innovation cooperation, and blocked circulation of innovation resources. Therefore, it is necessary to strengthen the integration of decision-making and coordination mechanisms, promote the efficient flow of talent, capital, logistics, technology, and information among provinces and cities, and ensure the efficient allocation and utilization of innovation factors. If the advantages of sharing, integration, and accumulation of innovation factors cannot be realized, it will further restrict the synergy development of scientific and technological innovation in the Yangtze River Economic Belt.

其四，科技创新协同发展不够。一是高端创新能力不足。对比长江经济带和东京、纽约等世界一流城市群，长江经济带的高校、科研机构等创新主体的创新实力，以及在科技出版物、专利等方面的创新产出能力，仍然存在较大的差距，高端创新能力存在短板。二是创新产出不均衡。长江中下游地区，特别在长三角地区拥有两个国家科学中心，相对较多的高水平研究机构，且与国际的科技交流相较更密切，基础研究与应用研究能力远超上游地区。此外，中下游地区创新服务机构，如科技中介、金融机构、法律服务、专利服务、会计事务所等种类齐全、职能完善；且众创空间、孵化器、加速器、科技园区、技术转移市场等载体数量多、功能强，中下游地区的科技成果转化率也远超上游地区。三是创新要素流动不够畅通。长江经济带区域面临制度性交易成本偏高与地方保护主义的双重约束，存在创新生态系统呈现碎片化，创新合作面临障碍，创新资源流通受阻等问题。因此，需强化决策与协调机制的融合力度，促进各省市间人才、资金、物流、技术及信息的高效流动，确保创新要素的高效配置与利用。如果无法发挥创新要素的共享、集成和累积优势，将会进一步制约长江经济带科技创新协同发展。

Promoting Industrial Gradient Transfer and Regional Cooperation to Boost Industrial Synergy in the Yangtze River Economic Belt

推进区域产业梯度转移和区域合作，促进长江经济带产业协同发展

Currently, the Yangtze River Economic Belt faces a key challenge: insufficient synergy of industrial chains among regions. The core reason for this challenge is that a regional unified national market adjustment mechanism covering the entire basin has not yet been successfully established. The absence of this mechanism directly makes it difficult to effectively realize industrial gradient transfer and orderly division of labor within the Yangtze River Economic Belt, resulting in a fragmented state of industrial layout. This situation further exacerbates the overlap and homogenization of dominant industries in various parts of the region, not only weakening the characteristic advantages of the regional economy but also limiting the full release and deep exploration of cross-regional synergistic innovation capabilities. To address this challenge, it is necessary to take the construction of world-class advanced manufacturing clusters in the Yangtze River Economic Belt as the direction, thereby leading and driving the deep integration and gradient transfer of domestic industrial chains.

当前，长江经济带正面临着一个关键挑战：区域间产业链协同性不足。这一挑战的核心原因在于，尚未成功构建出一个能够覆盖全流域的区域性全国统一市场调节机制。此机制的缺失，直接导致了产业梯度转移与有序分工在长江经济带内部难以有效实现，形成了产业布局的碎片化状态。此种状况进一步加剧了区域内各地主导产业的重叠现象与同质化趋势，不仅削弱了区域经济的特色优势，还限制了跨区域协同创新能力的充分释放与深度挖掘。为了应对这一挑战，需以构建长江经济带世界级先进制造业集群为方向，以此引领并推动国内产业链的深度整合与梯度转移进程。

First, in the field of labor-intensive manufacturing, the Yangtze River Economic Belt should focus on building a development model with Jiangsu and Zhejiang as the “dual-core drive,”[5]5 “Dual-core drive” (双核驱动) is a strategic term indicating two leading entities (here, Jiangsu and Zhejiang) jointly powering development. fully utilizing the traditional advantages and deep foundation accumulated by the two provinces in the manufacturing of labor-intensive products. At the same time, it is necessary to further strengthen the bridge and hub functions of central cities such as Hubei, Anhui, Jiangxi, and Hunan, making them core nodes of sub-central cooperation areas, and jointly build with the upper reaches a manufacturing ecosystem with clear layers, clear division of labor, and complementary advantages. The establishment of this system aims to promote the orderly gradient transfer and structural optimization of labor-intensive industries within the Yangtze River Economic Belt, promote the rationalization and efficiency of industrial layout, and thus achieve coordinated regional economic development.

一是在劳动密集型制造业领域，长江经济带应着力构建以江苏与浙江为“双核驱动”的发展模式，充分利用两地在劳动力密集型产品制造方面所积累的传统优势与深厚基础。与此同时，需进一步强化湖北、安徽、江西、湖南等中心城市的桥梁与纽带功能，促使它们成为次中心合作区域的核心节点，并与上游地区携手构建出一个层次分明、分工明确、优势互补的制造业生态系统。该系统的建立，旨在促进劳动密集型产业在长江经济带内的有序梯度转移与结构优化，推动产业布局的合理化与高效化，进而实现区域经济的协同发展。

Second, in the field of capital-intensive manufacturing, the Yangtze River Economic Belt should deeply tap and fully leverage the advantages of Jiangsu Province as a technology highland and core of industrial clusters, building on this basis a cooperation network radiating the entire basin, leading and promoting the coordinated development of surrounding areas such as Hubei, Jiangxi, Hunan, and Anhui. This strategy aims to deepen the connection and cooperation between the upstream and downstream of the industrial chain, promote the extension and integration of the industrial chain, and form industrial clusters with high agglomeration effects and a complete industrial ecosystem. In addition, support for distinctive industries in the middle and upper reaches of the Yangtze River should be increased, especially to enhance the competitiveness of Hubei and Jiangxi in the chemical fiber manufacturing industry, and the advantageous positions of Anhui and Guizhou in non-ferrous metal and ferrous metal smelting. Through policy guidance and optimization of resource allocation, the large-scale and specialized development of these distinctive industries should be promoted, enhancing their influence and voice in the global industrial chain. At the same time, attention should be paid to enhancing the technological innovation capability and industrial scale of key node cities such as Chongqing in ferrous metal smelting and wood processing, utilizing their unique geographic location and resource endowments to attract the orderly transfer of non-core industries from coastal developed areas like Shanghai and Zhejiang to inland areas. This will accelerate the spatial restructuring and transformation and upgrading of manufacturing within the Yangtze River Economic Belt, promote the development of industries toward greater scale, specialization, and clustering, and ultimately achieve comprehensive coordinated development and industrial upgrading of the regional economy.

二是在资本密集型制造业领域，长江经济带应深度挖掘并充分发挥江苏省作为技术高地与产业集群核心的优势，以此为基础构建辐射全流域的协作网络，引领并促进湖北、江西、湖南、安徽等周边地区的协同发展。这一策略旨在通过深化产业链上下游的衔接与合作，推动产业链条的延伸与整合，形成具有高度集聚效应与完整产业生态的产业聚集区。此外，应加大对长江中上游地区特色产业的扶持力度，特别是要增强湖北、江西在化学纤维制造业的竞争力，以及安徽、贵州在有色金属与黑色金属冶炼领域的优势地位。通过政策引导与资源配置优化，促进这些地区特色产业的规模化、专业化发展，提升其在全球产业链中的影响力与话语权。同时，还应关注并提升重庆等关键节点城市在黑色金属冶炼与木材加工业的技术创新能力与产业规模，利用其独特的地理位置与资源禀赋，吸引上海、浙江等沿海发达地区的非核心产业向内陆地区有序转移。加速制造业在长江经济带内的空间重构与转型升级，推动产业向更加规模化、专业化、集群化的方向发展，最终实现区域经济的全面协同发展与产业升级目标。

Third, in the development of technology-intensive manufacturing in the Yangtze River Economic Belt, strategies of industrial chain integration and technology transfer should be implemented to enhance the technology penetration and spillover effects from the lower reaches to the middle and upper reaches. Significantly enhance the industrial competitiveness and scale expansion of Anhui in the manufacturing of electrical machinery, special-purpose equipment, and general-purpose equipment; simultaneously accelerate the vigorous rise of industries such as Hubei’s pharmaceutical manufacturing, Sichuan’s electronic equipment manufacturing, and Hunan’s special-purpose equipment manufacturing, regarding technological innovation as the core driving force for endogenous industrial growth. For remote areas such as Yunnan and Guizhou, which have vast territories, relatively weak industrial scale and technological bases, a differentiated development path should be adopted, implementing precise technical guidance and exchange strategies based on their unique industrial foundations. In addition, potentially promising technology-based enterprises should be actively attracted and cultivated, adopting an “embedded” technology transfer model[6]6 “Embedded” technology transfer model (嵌入式技术转移) refers to directly implanting advanced technology and management into local enterprises.—directly introducing advanced technology and management experience into local enterprises—thereby accelerating the leapfrog development of technology-intensive manufacturing in these areas and achieving balanced and coordinated regional economic growth.

三是在长江经济带的技术密集型制造业发展进程中，应实施产业链整合与技术转移策略，以增强自下游至中上游的技术渗透与协作效应。显著提升安徽在电气机械制造、专用及通用设备制造领域的产业竞争实力与规模扩张，同时加速湖北医药制造业、四川电子设备制造业、湖南专用设备制造业等行业的蓬勃兴起，将技术创新视为驱动产业内生增长的核心要素。针对云南、贵州等地域广阔、产业规模与技术基础相对薄弱的偏远区域，应采取差异化发展路径，依据其独特的产业基础实施精准化的技术指导与合作交流策略。此外，应积极吸引并培育具备潜力的技术型企业入驻，通过“嵌入式”技术转移模式，即将先进技术与管理经验直接引入当地企业，从而加速这些地区技术密集型制造业的跨越式发展，实现区域经济的均衡与协调增长。

Promoting Regional Integration to Boost Urban Synergy in the Yangtze River Economic Belt

推进区域一体化进程，促进长江经济带城市协同发展

First, promote regional integration construction. The Yangtze River Economic Belt urgently needs to strengthen the process of integrated development, with specific strategies including: deepening the coordination mechanism between provincial and municipal governments to eliminate administrative obstacles, root out administrative monopolies, and completely abolish any policy provisions that hinder market unity and fair competition; at the same time, efforts must be made to eliminate regional protection barriers and market fragmentation, especially strengthening interaction and cooperation between border cities of different provinces; constructing a new cooperation framework based on unified planning and shared interests, thereby providing a solid institutional guarantee for the integration of the Yangtze River Economic Belt, and thus promoting the synchronized progress of infrastructure connectivity, business environment optimization, and major project platforms, achieving comprehensive deep integration and integrated development.

一是推动区域一体化建设。长江经济带亟须强化一体化发展进程，具体策略涵盖：深化省际与市际政府间的协作机制，旨在消除行政障碍，根除行政性垄断，全面废止任何妨碍市场统一与公平竞争的政策条款；同时，需着力消除地域保护壁垒与市场碎片化现象，尤其要强化省际交界城市的互动与合作；构建基于统一规划、利益共赢的新型合作框架，以此为长江经济带一体化提供坚实的制度保障，进而推动基础设施联通、营商环境优化及重大项目平台的协同共进，实现全方位的深度融合与一体化发展。

Second, promote targeted policies and benefit sharing. Within the landscape of industrial synergy, a mechanism for sharing fiscal and tax revenues from cross-regional projects needs to be built to promote deepened co-construction of cross-regional project cooperation; further improve the fiscal and tax incentive system for joint development of industrial parks, thereby stimulating cooperation motivation, tightening regional links, and accelerating the efficient pace of industrial transfer. For the “enclave economy” model,[7]7 “Enclave economy” (飞地经济) refers to a cross-regional cooperation model where one region establishes an industrial park in another, with shared benefits. a scientifically reasonable fiscal and tax benefit distribution mechanism needs to be designed to ensure its stable operation and sustainable development, helping less developed areas overcome development obstacles. In addition, establish principles for the division of fiscal and tax benefits from enterprise relocation, clarifying the rights and interests between the place of origin and the place of relocation, and promoting the optimized layout of industrial spatial structure. At the same time, at the level of public service provision, actively explore and establish a fair and reasonable benefit-sharing framework, which should include multi-dimensional mechanisms such as the integrated advancement of compulsory education and cross-regional connection of medical insurance, to fundamentally promote a significant improvement in the equalization of basic public services in the upper reaches of the Yangtze River.

二是推进分类施政，利益共享。在产业协同的版图中，需构筑跨区域项目财税收益分配机制，以促进跨地域项目合作的深化共建；进一步完善园区联合发展的财税激励体系，以此激发合作动力，紧密区域联动，加快产业转移的高效步伐。针对“飞地经济”模式，需设计科学合理的财税利益分配机制，保障其稳健运行与可持续发展，助力欠发达地区跨越发展障碍。此外，确立企业迁移的财税利益划分准则，明确迁出地与迁入地间的权益关系，促进产业空间结构的优化布局。同时，在公共服务供给层面，应积极探求并建立公正合理的利益共享架构，该架构应囊括义务教育的一体化推进、医疗保险的跨域衔接等多维度机制，以期从根本上促进长江上游地区公共服务均等化水平的显著提升。

Third, realize the linkage of the three major city clusters in the upper, middle, and lower reaches of the Yangtze River Economic Belt. Although current strategies related to the Yangtze River Economic Belt, such as the “Yangtze River Delta City Cluster Development Plan” and the “Middle Yangtze River City Cluster Development Plan,” have been implemented, their results have not yet fully manifested. One of the cruxes is the lack of an effective linkage mechanism among provinces and cities along the river. Economically developed areas lack motivation and find it difficult to play a leading role; while economically less developed areas have limited resources and influence. Given this, there is an urgent need for a region that combines national strategic status and development strength to serve as a breakthrough, driving the overall advancement of the Yangtze River Economic Belt. The Chengdu-Chongqing City Cluster is an ideal candidate for this role. The construction and expansion of the Chengdu-Chongqing City Cluster will catalyze the synergistic development process of the upper and middle reaches of the Yangtze River city clusters, deepen the linkage effect among the three major city clusters, and take as breakthrough points infrastructure connectivity, coordinated resolution of overcapacity, and deep cooperation in the service industry and shipping. In addition, the rise of the Chengdu-Chongqing City Cluster will also promote complementary and collaborative efforts in industrial agglomeration and industrial chain construction in the middle reaches of the Yangtze River city cluster, effectively curbing duplicate investment, overcapacity, and unhealthy competition, thereby enhancing the comprehensive competitiveness and sustainable development capability of the entire city cluster’s industrial system.

三是实现长江经济带上中下游三大城市群联动。当前《长江三角洲城市群发展规划》及《长江中游城市群发展规划》等长江经济带相关战略虽已启动实施，但成效尚未充分显现，其症结之一在于沿江省市间缺乏有效联动机制。经济发达地区动力不足，难以发挥引领作用；而经济欠发达地区则因资源有限，号召力受限。鉴于此，迫切需要一个集国家战略地位、发展实力于一身的区域作为突破口，推动长江经济带整体前行。而成渝城市群正是这一角色的理想担当，成渝城市群的构建与壮大，不仅将通过基础设施互联互通、产能过剩协同化解、服务业与航运等领域的深度合作作为突破口，催化长江上游与中游城市群的协同开发进程，进一步加深三大城市群之间的联动效应。此外，成渝城市群的崛起还将促进长江中游城市群在产业集聚与产业链构建上的互补与协作，有效遏制重复投资、产能过剩及不良竞争现象，进而提升整个城市群产业体系的综合竞争实力与可持续发展能力。

Fourth, promote the synergistic development of the Yangtze River Economic Belt and the Belt and Road Initiative. The Yangtze River Economic Belt urgently needs to further expand its openness and deepen the synergy and integration process among cities and within regions by strengthening cross-provincial cooperation frameworks and trade agreement frameworks. In the field of transportation infrastructure, the domestic transportation network layout under the Belt and Road Initiative has achieved deep integration with the transportation system of the Yangtze River Economic Belt. Railways, waterways, and shipping, among other modes of transport, seamlessly connect and support each other, jointly weaving an efficient trade logistics network connecting Central Asia, West Asia, Europe, and even the world. From an industrial development perspective, the Yangtze River Economic Belt, as one of the core hubs of China’s industrial landscape, has made a significant contribution to exports to Belt and Road Initiative partner countries. In particular, from the beginning of 2024 to the end of May, the Yangtze River Delta region’s exports to Belt and Road Initiative partner countries accounted for 34.5% of the national total, ranking first in the country, highlighting the region’s leading position in the global industrial chain, especially its significant driving effect on the manufacturing industries of Belt and Road Initiative partner countries. In addition, at the level of information and cultural exchange, multiple central cities within the Yangtze River Economic Belt have played key roles among the twin cities of the Belt and Road Initiative, greatly promoting the extensive circulation and dissemination of information and culture, creating a new situation in people-to-people exchanges, and contributing to building a closer bridge for international cooperation and understanding.

四是促进长江经济带与“一带一路”协同发展。长江经济带亟须通过强化跨省协作框架与贸易协议框架，来进一步拓宽其开放维度，并深化城市间及区域内部的协同与融合进程。在交通基础设施领域，共建“一带一路”倡议下的国内交通网络布局与长江经济带的交通体系实现了深度整合，铁路、水路及航运等多种运输方式无缝对接、相互支撑，共同编织出连接中亚、西亚、欧洲乃至全球的高效贸易物流网络。从产业发展视角来看，长江经济带作为我国工业版图的核心枢纽之一，其针对共建“一带一路”国家的出口贡献显著，特别是在2024年年初至五月底期间，长三角区域对共建“一带一路”国家的出口占比高达全国总额的34.5%，位居全国首位，彰显了该区域在全球产业链中的引领地位，特别是对共建“一带一路”国家的制造业的显著带动作用。此外，在信息与文化的交流层面，长江经济带内的多个中心城市在共建“一带一路”的对接城市中扮演了关键角色，极大地促进了信息与文化的广泛流通与传播，开创了人文交流的新局面，为构建更加紧密的国际合作与理解桥梁贡献力量。

Promoting the Formation of a Long-Term Governance Mechanism for the Entire Basin to Boost Ecological and Environmental Synergy in the Yangtze River Economic Belt

推进形成全流域治理长效机制，促进长江经济带生态环境协同发展

First, make good institutional arrangements for “jointly carrying out major protection.”[8]8 “Jointly carrying out major protection” (共抓大保护) is a policy slogan for the Yangtze River Economic Belt, emphasizing coordinated large-scale ecological protection. First, clearly define and firmly adhere to various ecological red lines,[9]9 Ecological red lines (生态红线) are legally defined boundaries for ecologically sensitive areas that require strict protection. strengthen top-level design, and focus on the construction of ecological barriers and ecological corridor systems to maximize their ecological benefits in water source protection, soil conservation, and biodiversity conservation. At the same time, refine the ecological red line management mechanisms and protection measures, clearly define the division of responsibilities among government departments at all levels, and implement a strict accountability mechanism. In addition, through the revision and improvement of relevant laws and regulations, provide solid legal support for ecological red lines, and accelerate the legislative process to ensure the timeliness and adaptability of the legal system. Second, attention should be paid to building and implementing legal frameworks with foresight and regulatory effectiveness, aiming to break through the rigid barriers of administrative divisions, optimize the organizational structure of the river and lake chief system,[10]10 The river and lake chief system (河湖长制) is a governance mechanism assigning specific officials responsibility for the protection and management of individual rivers and lakes. and strengthen the comprehensive protection, collaborative governance, and joint law enforcement capabilities for the ecological environment within the basin. Promote the transformation of governance models toward informatization and networking, use “Internet+” and big data technology to empower full-basin governance, promote the shift of governance subjects from a single government to multi-subject collaboration, and enhance the inclusiveness, participation, collaboration, and systematization of governance institutions. Accelerate the legislative process for basin ecological compensation, formulate an ecological compensation law, and promote the legalization and normalization of the ecological compensation mechanism. Improve the diverse compensation system that is both vertical and horizontal, draw on successful experiences from Jiangsu and other places, promote the simultaneous progress of fiscal vertical compensation and basin horizontal ecological compensation in the Yangtze River Economic Belt, and build a two-way driving mechanism for the ecological compensation system. Encourage the establishment of effective horizontal compensation mechanisms between beneficiary areas and ecological protection areas, between downstream and upstream basins, through various means such as financial compensation, paired cooperation, industrial transfer, talent training, and joint park construction.

一是做好“共抓大保护”的制度安排。首先，清晰界定并坚守各类生态红线，强化顶层设计，聚焦于生态屏障与生态廊道体系的构建，以最大化其在水源保护、土壤保持及生物多样性保育等多方面的生态效益。同时，需细化生态红线管理机制与保护措施，明确各级政府部门职责分工，实施严格的责任追究机制。此外，通过修订和完善相关法律法规体系，为生态红线提供坚实的法律支撑，并加速立法进程，确保法律制度的时效性与适应性。其次，应重视构建并执行具有前瞻性和管控效能的法律框架，旨在突破行政区划的刚性壁垒，优化河湖长制组织架构，强化流域内生态环境的综合保护、协同治理与联合执法能力。推动治理模式向信息化、网络化转型，利用“互联网+”与大数据技术赋能全流域治理，促进治理主体从单一政府向多方主体协同转变，提升治理制度的包容性、参与性、协作性和系统性。加快流域生态补偿立法进程，制定生态补偿法，推动生态补偿机制的法治化与常态化发展。完善纵横交织的多样性补偿制度，借鉴江苏等地成功经验，推动长江经济带财政纵向补偿与流域横向生态补偿双向并进，构建生态补偿体系的双向驱动机制。鼓励受益地区与生态保护地区、流域下游与上游之间，通过资金补偿、对口协作、产业转移、人才培养、共建园区等多种方式，建立有效的横向补偿机制。

Second, attach importance to multi-field collaborative cooperation and raise the level of environmental protection. In order to further advance the Yangtze River Economic Belt onto the track of high-quality development, the core lies in deepening the benign interaction mechanism between ecological environmental protection and economic development, scientific and technological innovation, and exchange services. At the same time, it is necessary to strengthen the overall coordination of the transformation and upgrading of traditional industries, the incubation of strategic emerging industries, and the implementation of ecological protection projects, ensuring coordinated development and simultaneous progress among various fields. Specifically, we should promote the ecological transformation of industries in cities along the river and facilitate the effective conversion of ecological resources into industrial advantages, while jointly tackling key difficulties in green environmental protection technologies, especially increasing investment in new infrastructure such as 5G networks, and collaboratively promoting the vigorous development of new forms of business such as artificial intelligence, the digital economy, and the health industry. In addition, it is necessary to further optimize the carbon emissions trading system, fully utilizing platforms such as the Shanghai Environment and Energy Exchange, the Hubei Carbon Emissions Exchange, and the Chongqing Carbon Emissions Exchange to effectively guide the flow of green capital from economically developed regions to less developed regions. Establish a unified ecological environment monitoring network for the Yangtze River basin, and improve mechanisms such as regular joint inspection mechanisms within the region and the co-construction and sharing of pollution prevention infrastructure.

二是重视多领域协同合作，提高环境保护水平。为了进一步推进长江经济带迈向高质量发展的轨道，核心在于深化生态环境保护与经济发展、科技创新及交流服务之间的良性互动机制，同时需强化对传统产业转型升级、战略性新兴产业孵化及生态保护项目实施的统筹协调，确保各领域间协同发展、齐头并进。具体而言，应推动沿江城市产业向生态化转型，并促进生态资源有效转化为产业优势，同时携手攻克绿色环保技术难关，特别是加大对5G网络等新型基础设施建设的投入力度，协同推动人工智能、数字经济、健康产业等新兴业态的蓬勃发展。此外，需进一步优化碳排放权交易体系，充分利用上海环境能源交易所、湖北及重庆碳排放权交易所等平台，有效引导环保资本从经济发达地区向欠发达地区流动。建立长江流域统一的生态环境监测网络，完善区域内常规性联合检查机制、污染防治基础设施的共建共享机制等。

Promote the formation of an innovation-driven mechanism to facilitate collaborative development of scientific and technological innovation in the Yangtze River Economic Belt

推进形成创新驱动机制，促进长江经济带科技创新协同发展

First, use innovation to drive and enhance one's own comparative advantages. The lower reaches of the Yangtze River region should continuously strengthen its leading position in the field of scientific and technological innovation, play a leading and exemplary role, radiate and drive surrounding areas, and jointly improve the overall innovation capacity. By optimizing science education and resource allocation, deepening the mechanism for collaborative scientific and technological innovation, and combining the advanced transformation of the industrial base and the modernization of industrial chains in the downstream region, the aim is to shape the Yangtze River Economic Belt into a national main force for overcoming high-tech "bottleneck" problems. Drawing on the successful model of the Yangtze River Delta "G60 Science and Innovation Corridor"[11]11 The G60 Science and Innovation Corridor is a regional cooperation initiative along the G60 expressway in the Yangtze River Delta, aimed at promoting technological innovation and industrial upgrading., build a platform for industrial scientific and technological innovation collaboration covering the entire river basin, and promote close cooperation and linkage among the three national-class scientific and technological innovation centers within the basin. Focus on key fields such as integrated circuits, semiconductors, biomedicine, new energy and new materials, and industrial basic software, implement projects to strengthen the industrial base, and accelerate breakthroughs in core key technologies. The upper reaches of the Yangtze River region, as the core driving force for Western development, occupy a key position in the construction of the southwest and southward corridors. Chongqing and Chengdu, as agglomerations of innovation resources, can join hands to build the "Upper Yangtze River Science and Technology Corridor," using R&D transformation as an engine to drive advanced manufacturing and emerging industries, forming a high-end industrial chain. At the same time, use information technology to promote the transformation of traditional industries, upgrade technology, develop new products, expand markets, achieve the leap from homogenized industries to distinctive advanced manufacturing, and strengthen intra-regional industrial complementarity and cooperation.

一是以创新驱动提高自身比较优势。长江下游区域应持续强化其科技创新领域的领先地位，发挥引领与示范效应，辐射并带动周边区域，共同提升整体创新能力。通过优化科学教育与资源分配，深化科技协同创新机制，结合下游地区产业基础的高级化转型与产业链现代化进程，旨在将长江经济带塑造为攻克高新技术“瓶颈”问题的国家主力军。借鉴长三角“G60科创走廊”的成功模式，构建覆盖全流域的产业科技创新协作平台，促进流域内三大国家级科技创新中心间的紧密合作与联动。聚焦于集成电路、半导体、生物医药、新能源新材料及工业基础软件等关键领域，实施产业基础强化项目，加速突破核心关键技术。长江上游地区，作为西部发展的核心驱动力，在西南及南向通道构建中占据关键地位。重庆与成都，作为创新资源聚集地，重庆与成都可联手打造“长江上游科技走廊”，以研发转化为引擎，驱动先进制造与新兴产业发展，形成高端产业链条。同时，利用信息技术促进传统产业转型，提升技术，开发新产品，拓展市场，实现同质化产业向特色先进制造业的跨越，加强区域内产业互补与合作。

Second, build a collaborative innovation network for the Yangtze River Economic Belt. To construct a dual sub-network system of knowledge collaboration and technological innovation, it is necessary to clarify a knowledge collaboration network led by source innovation, focusing on the incubation of innovative ideas, while simultaneously building a technology collaborative innovation network focusing on the practical application, widespread dissemination, and efficient transformation of scientific and technological achievements. Under the collaborative framework of the "chain-length system"[12]12 The "chain-length system" is a governance mechanism where designated officials are responsible for overseeing the development and coordination of specific industrial chains, ensuring integration and resilience., it is necessary to deepen the full-chain integration of manufacturing in the central cities of the Yangtze River Economic Belt, ensuring precise matching between supply and demand sides, thereby forming an open and inclusive, horizontally coordinated industrial division of labor structure and chain. Zhangjiang in Shanghai and Hefei[13]13 Zhangjiang in Shanghai and Hefei in Anhui province are both designated as national comprehensive science centers, focusing on fundamental research and major applied technology development., as national comprehensive science centers, should fully play their core supporting roles in basic scientific research and the development of major applied technologies. Through the co-construction and sharing of major scientific facilities, radiate and drive the scientific and technological innovation activities of core cities in the middle and upper reaches of the Yangtze River urban agglomerations, achieving joint tackling of major scientific and technological projects in the Yangtze River Economic Belt; take the "Double First-Class"[14]14 "Double First-Class" refers to a Chinese national higher education initiative launched in 2017 to develop a group of world-class universities and disciplines. universities within the Yangtze River Economic Belt as the lead, promote academic exchanges, scientific research cooperation, and joint talent cultivation in related disciplines among different universities, building a university knowledge cooperation network and constructing a university development community.

二是构建长江经济带协同创新网络。为构建知识协同与技术创新的双重子网络体系，需明确以源头创新为引领的知识协同网络，专注于创新思维的孵化，同时构建技术协同创新网络，聚焦于科技成果的实践应用、广泛传播与高效转化。在“链长制”的协同架构下，需深化长江经济带中心城市制造业的全链条整合，确保供需两侧的精准衔接，进而形成开放包容、横向协同的产业分工架构与链条。上海张江与合肥作为国家级综合科学中心，其在基础科学研究与重大应用技术开发中的核心支撑作用应得到充分发挥。通过重大科学设施的共建共享，辐射带动长江中游、上游城市群核心城市的科技创新活动，实现长江经济带重大科技项目的联合攻关；以长江经济带内“双一流”高校为主导，促进不同高校之间相关学科的学术交流、科研合作、人才联合培养，构建高校知识合作网络，建设高校发展共同体。

Third, develop two-way "innovation enclaves"[15]15 "Innovation enclaves" refer to cross-regional cooperation zones where one region establishes a base in another region to leverage innovation resources, often involving bidirectional flows of capital, talent, and technology.. Against the backdrop of Yangtze River Delta regional integration, the enclave economy has shown a trend of shifting from a single "industrial enclave" to "innovation enclaves" and "two-way enclaves." The construction of "innovation enclaves" has become an important way of regional cooperation in the Yangtze River Delta. This transformation not only promotes the complementarity and optimized allocation of regional resource advantages but also significantly deepens the level and scope of scientific and technological cooperation, playing a strong role in promoting the construction of a "development community." To adapt to this change trend, the management institutions of development zones in the Yangtze River Economic Belt need to accelerate their transformation pace, evolve towards a development and operation group model, promote efficient capital circulation, mutual investment, and strategic integration among parks, and build a management and service network architecture centered on large-scale development zone operation groups. At the same time, it is necessary to enhance the leading role of large enterprises and industry associations in cross-regional supply chain construction, industrial chain upgrading, innovation chain coordination, value chain appreciation, and the deeply integrated system of "government-industry-academia-research-application"[16]16 The "government-industry-academia-research-application" integration model is a policy framework promoting collaboration among government, enterprises, universities, research institutes, and end-users to accelerate innovation and commercialization., promoting the effective docking of innovation elements and industrial resources. We must actively promote the cultivation and development of world-class industrial clusters in our country, focusing on key fields such as next-generation information technology, high-end materials, big data, cloud computing, quantum technology, and intelligent manufacturing, accelerating the incubation and growth of world-class industrial clusters in the Yangtze River Economic Belt, providing solid support for the high-quality development of the regional economy.

三是发展双向“创新飞地”。在长三角区域一体化背景下，飞地经济呈现出从单一的“产业飞地”向“创新飞地”和“双向飞地”转变的趋势，“创新飞地”建设已成为长三角区域合作的重要方式。此转变不仅促进了区域资源优势的互补与优化配置，还显著加深了科技合作的层次与范围，对“发展共同体”的构建进程起到了强有力的推动作用。为顺应此变革趋势，长江经济带内的开发区管理机构需加快转型步伐，向开发运营集团模式演进，促进园区间资本的高效流通、相互投资及战略整合，构建以大型开发区运营集团为核心的管理与服务网络架构。同时，应增强大型企业及行业协会在跨区域供应链构建、产业链升级、创新链协同、价值链增值以及“政产学研用”深度融合体系中的引领作用，促进创新要素与产业资源的有效对接。要积极推动我国世界级产业集群的培育与发展，聚焦于新一代信息技术、高端材料、大数据、云计算、量子科技、智能制造等关键领域，加速长江经济带世界级产业集群的孵化与成长，为区域经济的高质量发展提供坚实支撑。

(Li Xuesong, Professor, School of Economics and Management, Wuhan University)

（李雪松 武汉大学经济与管理学院教授）

Online Editor: Huihui

网络编辑：慧慧