Accelerate the Construction of China's Industrial Chain Policy System

China has a complete range of policies targeting industries and enterprises, but it lacks a specific policy category dedicated to industrial chains. Accelerating the construction of a new development pattern, fundamentally safeguarding the security of China's industrial and supply chains, and forming new advantages for participation in international cooperation and competition all require the rapid formation of a complete, forward-looking, and precisely implemented industrial chain policy system. It is necessary to accelerate the construction of China's industrial chain policy system from the five aspects of "ensuring security, promoting innovation, improving efficiency, expanding openness, and optimizing governance," building an autonomous, controllable, safe, and reliable industrial chain, and promoting the modern development of China's industrial chain.

我国面向产业和企业的相关政策门类齐全，但缺少专门面向产业链的政策门类。加快构建新发展格局，从根本上保障我国产业链供应链安全，形成参与国际合作和竞争的新优势，都需要加快形成体系完备、前瞻性强、实施精准的产业链政策。有必要从“保安全，促创新，提效率，扩开放，优治理”五个方面加快构建我国产业链政策体系，构建自主可控、安全可靠的产业链，推动我国产业链现代化发展。

Two Major Development Backgrounds

两大发展背景

Since reform and opening up, China's economy has developed rapidly, and various industries have continued to grow. In stark contrast, China's industrial chain development is still insufficient. Under new international circumstances such as de-globalization, many shortcomings in the industrial chain have been exposed, including key technologies, resources, and components at the source of the industrial system being "strangled,"[1]1 "Strangled" refers to the situation where foreign countries block the supply of critical technologies, resources, or components to China. the weak strength of chain-leader enterprises,[2]2 A "chain-leader enterprise" is a dominant firm within an industrial chain that coordinates upstream and downstream activities and drives innovation and competitiveness. weak upstream-downstream linkages in the industrial chain, and a lack of backup for key links in the industrial chain. Overall, China's industrial chain lacks autonomy, controllability, and resilience, and its security is threatened. At the same time, the synergy between the industrial chain and the innovation chain needs further improvement; the overall innovation capacity of the chain is relatively weak, operational efficiency needs to be enhanced, and coordinated governance of the industrial chain and innovation chain requires further improvement. Currently, China's relevant policies are mostly formulated around strategic emerging industries, basic industries such as agriculture, and are mostly targeted at enterprises, especially large enterprises. A complete policy system has been formed at the two levels of the industry "surface" and the enterprise "point." These policies have made outstanding contributions to China's industrial economic development, but they lack specificity, systematicity, and foresight, making it difficult to systematically address the prominent problems of the industrial chain. A specialized policy category for the industrial chain has not yet been formed. In addition, the problem of "nine dragons governing the waters"[3]3 "Nine dragons governing the waters" is a Chinese idiom describing fragmented administration where multiple agencies have overlapping or conflicting responsibilities. in policies related to different links of China's industrial chain is quite prominent, and there is an urgent need to form a policy system at the "chain" level.

改革开放以来，我国经济发展迅速，各类产业不断壮大。与之形成鲜明对比的是，我国产业链发展尚不充分，在逆全球化等新的国际形势下，暴露出产业链存在诸多短板，产业体系源头的关键技术、资源和元器件等被“卡脖子”，链主型企业实力偏弱，产业链上下游联结乏力，产业链关键环节缺乏备份等突出问题。总体来看，我国产业链自主性、可控性和韧性不足，产业链安全受到威胁。同时，产业链与创新链之间的协同性有待进一步提高，链条的整体创新能力偏弱，运行效率有待提升，需要进一步完善产业链和创新链的协同治理。目前，我国相关政策多围绕战略性新兴产业、农业等基础产业制定，多针对企业特别是大型企业，在产业的“面”和企业的“点”两个层面形成了完备的政策体系。这些政策对我国产业经济发展作出了突出贡献，但针对性、体系性和前瞻性还不够，难以系统解决产业链的突出问题，尚未形成专门面向产业链的政策门类。此外，我国产业链不同环节相关政策“九龙治水”的问题比较突出，亟须形成“链”层面的政策体系。

Currently, major developed countries have implemented a series of policy measures around industrial chain security and efficiency and have formulated a series of multilateral rules. The United States has formulated Section 301 (Trade Act of 1974), Section 337 (Tariff Act of 1930), the Export Control Reform Act of 2018, Section 889 (National Defense Authorization Act for Fiscal Year 2019), and the "TRIPS-Plus" in the field of intellectual property governance, and has also led the formulation of international multilateral rules such as the Wassenaar Arrangement,[4]4 The Wassenaar Arrangement is a multilateral export control regime on conventional arms and dual-use goods and technologies. creating constraints on China's industrial chain. In 2020, the United States and Japan also introduced a series of cost-support policies to encourage their manufacturing enterprises to return, attempting to induce globally deployed industrial chains to contract toward their "near-shore" and "friend-shore" regions as well as domestically, in order to maintain their industrial chain security. Against this international backdrop, the importance of accelerating the construction of China's industrial chain policy system has become increasingly evident.

目前，主要发达国家已围绕产业链安全和效率实施了一系列政策举措，制定了一系列多边规则。美国制定了301条款（1974年《贸易法案》）、337条款（1930年《关税法》）、2018年《出口管制法案》、889条款（2019年《国防授权法案》）以及知识产权治理领域的“TRIPS-Plus”等，还主导制定了《瓦森纳协定》等国际多边规则，对我国产业链造成钳制。2020年，美国和日本还出台一系列鼓励本国制造企业回流的费用支持政策，试图推动全球布局的产业链向其“近岸”和“友岸”区域以及国内收缩，以维护其产业链安全。在此国际背景下，加快构建我国产业链政策体系的重要性愈发凸显。

Five Focal Points

五个着力点

To accelerate the construction of an industrial chain policy system, China can focus on the five aspects of "ensuring security, promoting innovation, improving efficiency, expanding openness, and optimizing governance" to accelerate the formation of an organically coordinated and precisely implemented industrial chain policy system, thereby advancing the modernization of China's industrial chain.

我国要加快构建产业链政策体系，可以从“保安全，促创新，提效率，扩开放，优治理”五个方面着力，加快构建有机协同且实施精准的产业链政策体系，以推进我国产业链现代化的进程。

Ensuring security. Start from the five aspects of "lengthening strengths, filling shortcomings, strengthening linkages, enhancing resilience, and building barriers" to accelerate the formation of a multi-dimensionally linked industrial chain security policy, building a safe, reliable, autonomous, and controllable industrial chain. First, lengthen strengths: identify and sort out the advantages of the industrial chain, strengthen the new demand creation function of advantageous industrial chains, and enhance their international discourse power. Second, fill shortcomings: draw up a list of shortcomings such as key technologies, resources, and components, systematically analyze the current status, causes, impacts, and changing trends of these shortcomings, and formulate differentiated strategies to address them. Third, strengthen linkages: enhance upstream-downward linkages in the industrial chain, promote joint innovation along the industrial chain, and build a strongly linked local industrial chain. Fourth, enhance resilience: accelerate the construction of technological backups and an industrial ecosystem, and systematically improve the industrial chain's ability to cope with instability and uncertainty. Fifth, build barriers: timely anticipate industrial chain security risks, build an early warning and emergency response mechanism for major security risks, and erect a tight institutional firewall.

保安全。可以从“拉长板、补短板、强联结、增韧性、建屏障”五个方面入手，加快形成多方位联动的产业链安全政策，构建安全可靠、自主可控的产业链。一要拉长板，识别梳理产业链优势，强化优势产业链的新需求创造功能，提升优势产业链的国际话语权。二要补短板，梳理出关键技术、资源和零部件等短板清单，系统分析短板的现状、成因、影响与变化态势，制定差异化的补短板策略。三要强联结，强化产业链上下游联结，促进产业链共同创新，打造联结有力的本土产业链。四要增韧性，加快构建技术备份和产业生态系统，系统提升产业链应对不稳定性、不确定性的能力。五要建屏障，及时预判产业链安全风险，构建重大安全风险的预警与应急机制，构筑严密的制度防火墙。

Promoting innovation. Accelerate the construction of an industrial chain innovation policy system from the four aspects of "fundamental driving force, market orientation, technology sources, and innovation methods." First, promote the transformation of the fundamental driving force of industrial chain development to innovation-driven. Formulate innovation policies targeting the entire industrial chain, both leveraging the innovation-driving role of chain-leader enterprises and supporting the development of specialized and new[5]5 "Specialized and new" (专精特新) refers to "specialized, refined, distinctive, and innovative" small and medium-sized enterprises. enterprises in each link. Second, promote the shift of the market orientation of industrial chain innovation to domestic demand orientation. To transform China's industrial chain into a domestic-demand-led industrial chain, encourage it to focus on launching new products and services for the domestic market, and develop productive service industries such as industrial design. Third, promote the shift of the main technology sources of the industrial chain to self-reliance and self-strengthening. Properly handle the relationship between independent innovation and international technology introduction, strive to achieve the localization of key technologies, and defuse potential risks in international technology introduction. Finally, promote the shift of the main method of industrial chain innovation to digital-intelligence. Accelerate the digital-intelligence industrialization and the digital-intelligence development of the industrial chain, promote industrial chain digital-intelligence projects, and create a number of industrial cluster digital-intelligence demonstration zones.

促创新。可以从产业链发展的“根本动力、市场导向、技术来源和创新方式”四个方面，加快构建产业链创新政策体系。首先，推动产业链发展的根本动力转向创新驱动。制定面向全产业链的创新政策，既发挥链主企业的创新带动作用，又支持各环节专精特新企业发展。其次，推动产业链创新的市场导向转为内需导向。为使我国产业链向内需主导型产业链转换，应鼓励其重点针对国内市场需求推出新产品和新服务，发展好工业设计等生产性服务业。再次，推动产业链的主要技术来源转向自立自强。处理好自主创新与国际技术引进的关系，努力实现主要技术国产化，化解国际技术引进中的潜在风险。最后，推动产业链创新的主要方式转向数智化。加快数智产业化与产业链数智化发展，推进产业链数智化工程，打造一批产业集群数智化示范区。

Improving efficiency. Accelerate the formation of industrial chain efficiency policies from the three aspects of "operational rules, spatial layout, and green development" to build a green and efficient industrial chain. First, improve the operational rules of the industrial chain, especially the rules for competition and cooperation, to promote orderly cooperation and benign competition along the industrial chain and reduce operational costs. At the same time, strengthen the legal and compliance supervision of enterprise operations, and use new technologies to carry out industrial chain credit governance. Second, optimize the spatial layout of the industrial chain, promote the transformation of traditional industrial clusters into innovation clusters, and rely on the seven major urban agglomerations[6]6 The seven major urban agglomerations refer to the Beijing-Tianjin-Hebei, Yangtze River Delta, Pearl River Delta, and other key city clusters in China's regional development strategy. to develop whole-industrial-chain clusters. On this basis, gradually promote the integration of regional industrial policies and form a unified set of operational rules for the industrial chain nationwide. Third, promote the green development of the industrial chain, optimize top-level design, establish inter-enterprise and inter-regional ecological compensation mechanisms, develop new monitoring methods based on new technologies, and use digital-intelligence technologies to boost the greening of the industrial chain.

提效率。可以从“运行规则、空间布局和绿色发展”三个方面，加快形成产业链效率政策，构建绿色高效的产业链。一要健全产业链运行规则，特别是健全产业链竞合规则，促进产业链有序合作、良性竞争，降低产业链运行成本。同时，要加强企业运行合法合规监管，运用新技术开展产业链信用治理。二要优化产业链空间布局，推动传统产业集群向创新集群转型，依托七大城市群发展全产业链集群。在此基础上，逐步推进各区域产业政策相融相通，形成全国统一的产业链运行规则。三要促进产业链绿色发展，优化顶层设计，建立企业间、区域间生态补偿机制，发展基于新技术的新监测手段，以数智化技术助推产业链绿色化。

Expanding openness. Accelerate the formation of industrial chain openness policies from the four aspects of "building a power engine for home-field globalization, expanding international markets and rule space, expanding imports and the introduction of high-quality foreign investment, and promoting diversified openness based on the characteristics of different industrial chains." First, within free trade zones, construct open agglomeration zones for industrial chains, such as those for foreign investment landing, local export-oriented industrial chains, and Sino-foreign mixed types, turning free trade zones into power engines for home-field globalization. Second, actively participate in the formulation of international economic and trade rules, accelerate the construction of a global industrial chain where China's industries have full discourse power and that is co-created and shared, expand the international market and rule space for industrial chains, and promote a new type of globalization. Third, improve the institutional system for investment facilitation and trade liberalization, expand imports and the introduction of high-quality foreign investment, continuously attract high-quality foreign-invested enterprises, and promote their deep rooting. Finally, based on the characteristics of different industrial chains, rationally plan differentiated development patterns for each major industrial chain, implement targeted industrial chain openness policies, and promote diversified openness.

扩开放。可以从“打造主场全球化的动力引擎，拓展国际市场与规则空间，扩大进口与高质量外资引进，针对不同产业链特征推动多样化开放”四个方面，加快形成产业链开放政策。首先，可在自贸区内构建外资产业链落地型、本土产业链出口型以及中外混合型等产业链开放集聚区，将自贸区打造为主场全球化的动力引擎。其次，积极参与国际经贸规则制定，加快构建我国产业具有充分话语权、共创共享的全球产业链，开拓产业链的国际市场与规则空间，推动新型全球化。再次，完善投资便利化、贸易自由化的制度体系，扩大进口与高质量外资引进，不断引进高质量外资企业，推动外资企业落地生根。最后，针对不同产业链特征，合理谋划各主要产业链的差异化发展格局，实施针对性的产业链开放政策，推动多样化开放。

Optimizing governance. Industrial chain governance needs to accelerate the transformation from "handling incidents" to "institutionalization" and then to "integrated governance," comprehensively improving the effectiveness of industrial chain governance. First, innovate the institutional mechanisms of the "chain-chief system."[7]7 The "chain-chief system" (链长制) is a governance mechanism where designated officials (chain-chiefs) are responsible for coordinating and promoting the development of specific industrial chains. Construct a three-tier "chain-chief system" organization: "national-level chain-chief leading group – regional-level chain-chief joint meeting – grassroots chain-chiefs." On this basis, continuously increase the number of chain-chiefs, appointing heads of scientific research institutions and non-governmental departments such as chambers of commerce and industry associations as chain-chiefs. At the same time, expand the scope of chain-chief responsibilities from industrial chain governance to innovation chain governance, promoting the deep integration of the two chains. Second, optimize the digital innovation governance mechanism for the industrial chain. Develop scenario-based large models for the industrial chain, constructing an industrial chain ecosystem with organic synergy among the upstream (computing power facilities, data service providers, algorithm suppliers, etc.), midstream (various R&D manufacturers), and downstream (various vertical applications), realizing a new smart governance model of industrial chain driven by digital intelligence, dynamic observation, and intelligent decision-making. Third, enhance the synergy among four industrial chain governance mechanisms: the chain-chief system, chain-leader enterprises, the community of upstream-downstream enterprises, and the digital-intelligence governance platform for the industrial chain.

优治理。产业链治理需要加快由“事”到“制”再到“治”的转变，全面提升产业链治理效能。一要创新“链长制”体制机制。构建“国家层面链长领导小组—区域层面链长联席会议—基层链长”三个层级的“链长制”组织。在此基础上不断增加链长数量，委任科学研究机构以及商会行业协会等非政府部门负责人担任链长。同时，要将链长职责范畴从产业链治理扩展到创新链治理，促进两链深度融合。二要优化产业链数字创新治理机制。研发产业链场景大模型，构建上游（算力设施、数据服务商、算法供应商等）、中游（各类研发厂商）、下游（各类垂直应用）有机协同的产业链生态，实现数智驱动、动态观测、智慧决策的产业链智治新模式。三要增强“链长”、链主企业、上下游企业共同体、产业链智治平台四种产业链治理机制的协同。

Three Guarantee Mechanisms

三重保障机制

First, strengthen the top-level design of industrial chain policy formulation. Establish an industrial chain work leading group at the national level to plan and formulate China's industrial chain development strategic plan, and designate relevant government departments at both the national and provincial (municipal, autonomous region) levels to strengthen cross-departmental coordination. Select representative industrial chains that hold important positions in the industrial system, such as chips and high-end equipment manufacturing, as pilot projects. With the Ministry of Science and Technology, the Ministry of Industry and Information Technology, etc., coordinating with various provinces (municipalities and autonomous regions), under the framework of the strategic plan, gradually construct a complete policy system tailored to the characteristics of these industrial chains and implement it precisely. Promote industrial chain policies with significant results and strong replicability, and launch a batch of demonstration projects for industrial chain policies.

第一，加强产业链政策制定的顶层设计。在国家层面成立产业链工作领导小组，谋划制定我国产业链发展战略规划，并确立国家和省（市、区）两个层面的相关政府部门，加强跨部门协作。可以选择芯片、高端装备制造等在产业体系中具有重要地位的代表性产业链为试点，由科技部、工信部等协同各省（市、区），在战略规划框架下，根据这些产业链的特点，逐步构建完整的政策体系并精准实施。推广实施成效显著、可复制性强的产业链政策，推出一批产业链政策示范项目。

Second, establish a decision-making and implementation mechanism for the industrial chain policy system. Smooth the channels for enterprises, industry associations, and industrial think tanks to participate in the formulation of industrial chain policies, and improve the scientific, democratic, and law-based level of decision-making. Establish a performance management mechanism for the implementation of industrial chain policies, conducting evaluation and comprehensive performance management of policy implementation effectiveness. On this basis, design a dynamic optimization mechanism for the policy system, entrust relevant think tanks to carry out auxiliary work such as "assessment, monitoring, evaluation, and adjustment," to enhance the institutionalization level of industrial chain policy practice.

第二，建立产业链政策体系的决策执行机制。畅通企业、行业协会以及产业智库等参与产业链政策制定的渠道，提高决策科学化、民主化、法治化水平。建立产业链政策执行绩效管理机制，对产业链政策执行绩效等进行评价与全面绩效管理。在此基础上，还应设计政策体系动态优化机制，委托相关智库开展“评估、监测、评价、调整”等辅助工作，提升产业链政策实践的制度化水平。

Third, conduct monitoring and evaluation of industrial chain development. Establish a dynamic monitoring center for industrial chain development, conduct surveys on industrial chain development, and build a big database for industrial chain development. Use technologies such as artificial intelligence and big data to identify, monitor, and evaluate the development status of the industrial chain, formulate an indicator system for industrial chain development, and compile indices for industrial chain security, innovation, credit, governance, etc., to provide important information support for further optimizing the industrial chain policy system.

第三，开展产业链发展监测评价。可成立产业链发展动态监测中心，开展产业链发展调查，建立产业链发展大数据库。运用人工智能与大数据等技术，进行产业链发展状况的识别、监测与评估，并制定产业链发展指标体系，编制产业链安全指数、创新指数、信用指数和治理指数等，为进一步优化产业链政策体系提供重要信息支撑。

(The authors are: Dean and Professor of the School of Business Administration (MBA School) of Zhejiang Gongshang University, Researcher of the Important Window Research Institute; Vice Dean and Professor of the School of Business Administration (MBA School) of Zhejiang Gongshang University, Researcher of the Important Window Research Institute.)

（作者系浙江工商大学工商管理学院（MBA学院）院长、教授、重要窗口研究院研究员；浙江工商大学工商管理学院（MBA学院）副院长、教授、重要窗口研究院研究员）

Online Editor: Huihui

网络编辑：慧慧