September 17, 2025
JDURLG GO D [2025] No. 5
In order to firmly seize the opportunity of "technology returning to the urban areas" and fully unleash the spatial potential of Jing'an's commercial buildings and industrial parks (hereinafter referred to as the "buildings" and "parks"), in accordance with the spirits of the documents such as the Implementation Opinions of the General Office of Shanghai Municipal People's Government on Promoting the Renovation and Upgrading of the Commercial Buildings(SMPG GO G [2025]No. 13) and the ActionPlans for High-Quality Development of the Specialized Industrial Parks in Shanghai (2024-2026) (SMPG GO G[2023]No. 20 ), and on the basis of the actual situations of Jing'an District, these Implementation Opinions have been formulated.
IMain Objectives
TheseImplementation Opinions, guided by Xi Jinping Thought on Socialism with the Chinese Characteristics for the New Era, fully implement the spirits of the 20th National Congress of the Communist Party of China and the Third Plenary Session of the 20th Central Committee, as well as the important speech of General Secretary Xi Jinping's inspection of Shanghai, focus on serving the construction of the "five centers", adhere to the principles of "planning guidance, classified policy implementation, science and technology innovation empowerment, and quality improvement", advance the renovation and upgrading of the commercial buildings and transformation and upgrading of the industrial parks, so as topromote the transformation of the operators to integrated service providers, enhance the leading and innovative functions of the high-end industries, promote the professional, distinctive, clustered and brand-oriented development, comprehensively improve the functional quality and comprehensive benefits of the buildings and parks, and provide carrier support for the high-quality development of Jing'an economy. By 2027, the entire District shall complete no less than 20 landmark commercial building renovation projects, optimizing the business format and the level of spatial compounding of the buildings. This District shall implement the action of "collecting and storing a batch, rectifying a batch, and improving a batch"of the industrial parks, promote the transformation of the inefficient land use and enhance the capability of scientific and technological innovation resources. This District shall, by focusing on the orientation of the key regional industries, serve the scientific and technological innovation layout of the entire District during the 15th Five Year Plan period, and construct a batch of distinctive theme parks.
II Key Tasks
(1)Guiding standardized comprehensive rectification
1. Establishing a comprehensive evaluation system.This District shall, by combining the urban physical examination work and relying on the building monitoring platform, improve the performance evaluation system for the commercial buildings, classify and evaluate the total number and structure of the super class A, class A, class B and class C commercial buildings, and guide the building renovation and improvement. This District shall, on the basis of the evaluation of the inefficient land use, establish a comprehensive evaluation system for the industrial parks, implement dynamic management mechanisms, and guide the parks to gradually improve their quality and efficiency.
2.Implementing a special action to upgrade and improve the commercial buildings.This District shall develop a special work plan, clarify the departmental responsibilities, and form a 3-5 year renovation task list on the basis of the specific work requirements such as functional renewal, operational improvement, functional integration, public environment, and regional renovation in the renovation and improvement work of the commercial buildings. This District shall, on the basis of fully leveraging the enthusiasm and initiative of the market entities, further strengthen the government guidance and resource introduction in renovating and improving the directions, paths, policies, and empowering the key areas.
3. Implementing the "three batches" action plan for the industrial parks.This District shall, by implementing the classified policies, advancing in stages, and formulating "one park, one plan", strive tocollect and store a batch, rectify a batch, and improve a batch of the parks within three years, guide the parks to focus on improving the industrial agglomeration and brand effect, actively introduce high-level platforms, strengthen industrial cultivation and guidance, so as to form the innovative industrial spaces with distinctive industrial agglomeration and bright points in brand construction.
(2) Promotingrenovation and implementing revitalization
4.Strengthening research on regional renovation.This District shall, via the "collaborative creation of the planner, architect and appraiser" and international scheme solicitation, and the other ways, continue to carry out research on business unit renovation and urban design, use block renovation to drive building renovation, and promote the upgrading of the business unit competitiveness and functional agglomeration through high-quality design and high standard construction. The West Nanjing Road and Suhewan areas shall focus on "building renewal" to improve the operation and management level of the carrier industries, enhance the concentration and output intensity of the business formats, and continuously maintain the vitality and competitiveness of the industrial carriers. The Daning and Shibei areas shall focus on "park renewal", optimize the carrier hardware facilities and environmental quality, enhance functional integration and business compatibility, and strive to improve the regional service capabilities.
5.Supporting building expanding functions.This District shall adhere to the overall functional positioning orientation, classify the business areas according to their different locations and functions, maintain and enhance the core functional level of the business areas, and encourage the revitalization and upgrading of the existing commercial buildings. Under the premise of complying with the relevant environmental protection, fire and safety, and the other standards and requirements, the existing commercial buildings shall be allowed to integrate the functional formats such as commercial services, hotels, research and development innovation, rental housing (including talent apartments), education and training that are in line with the urban development orientation and meet people's production and living needs. The commercial buildings shall be encouraged to enhancetheir comprehensive competitiveness by increasing the facilities such as sports, cultural services, medical services, and so on.
6.Increasing the recycling of inefficient land use. For the industrial parks with low efficiency or lack of industrial functions, this District shall clarify the exit standards and operational methods,so as to smooth the park exit mechanism. This District shall comprehensively utilize the various ways such as disposing of the idle land, negotiating termination of contracts, unilateral termination of contracts, expiration of land use periods, public interests, and illegal activity rectification to reclaim the right to use the inefficient industrial land for redevelopment. This District shall, byfocusing on the overall transformation of the low efficiency parks in the specific areas and the revitalization of the scattered industrial land, increase the strength of land collection, storage, renovation and revitalization.
7.Encouraging the revitalization of the parks. On the premise of ensuring the industrial attributes and output benefits, strict and prudent support policies shall be applied to support the industrial parks to adopt the methods such as leasing first and then transfer, long-term leasing, etc., so as to encourage their mixed use. This District shall promote the "vertical industrial development" of the light-footprint production, low-noise, and environmentally friendly enterprises, support the reasonable needs of vertical industrial development of the land use enterprises, build "smart manufacturing spaces", guide the accelerating agglomeration of the functions such as research and development innovation, factor platforms, achievement transformation, inspection and testing, public services and so on. For the buildings in the various industrial parks that are illegally and irregularly used for commercial purposes or those that are used in accordance with laws and regulations but with low efficiency, classified measures shall be taken to expand the spaces for industrial development.
(3)Promoting industrial agglomeration and upgrading
8.Implementing an industry access mechanism. This District shall guide the building operators to monitor the industrial direction of the introduced projects, guide the buildings to optimize their leasing structure according to the industrial planning and positioning, and support the buildings to construct the"characteristic buildings" that are in line with the industrial direction. This District shall promote vertical agglomeration of industries in space through industrial clusters, industrial chains, and the other means, so as to achieve a synergistic effect of "upstairs and downstairs is upstream and downstream", and create a group of characteristic buildings with "one floor, one feature" and industrial agglomeration influence and radiation power. This District shall support the parks to focus on one or more leading industry categories, promote the accelerated agglomeration and development of the advantageous leading industries in the parks, and create the themed parks. This District shall encourage, support, and guide the industrial positioning of the buildings and parks to align with the key industry orientation,actively seize the emerging industries and future industry frontiers by focusing on the new tracks and fields of data intelligence and life and health industries, targetthe leading industries and enhance the degree of industrial agglomeration on the basis of the inherent resource endowments of the buildings and parks.
9.Strengthening the introduction of high-quality projects. This District shall build an investment promotion ecosystem for the commercial buildings, promote the integration of investment services, introduce high-level professional operation teams, improve the matching of introduced projects with the building functions and leading industries, create building investment promotion brands, and enhance their economic contribution. This District shall actively carry out building promotion, policy release, packaging and project docking work, comprehensively apply various investment channels such as list investment, capital investment, business to business investment, industrial chain investment, institutional investment, and overseas investment to enhance the efficiency of building investment promotion. This District shall encourage the buildings and parks to accelerate the introduction or cultivation of the multinational corporations' regional headquarters and private enterprise headquarters, the national high-tech enterprises, the municipal science and technology small giant enterprises, "specialized, refined, unique, and novel" small and medium-sized enterprises, the national and municipal enterprise technology centers, and the other industry-leading enterprises. This District shall identify 1-2 "chain owner" enterprises to attract collaborative cooperation among the small and medium-sized enterprises on the chains. The project proposals for investment must meet the industry access requirements. For the major scientific and technological innovation industry projects with strong professionalism and complex access requirements, the industry departments, professional departments, the relevant functional zones, sub-district offices and township government, and the operators shall establish a linkage mechanism.
(4)Science and technology empowering sustainable development
10.Strengthening the introduction of scientific and technological innovation functions. This District shall support the construction of public service platforms for the buildings and parks, by targeting the key industries and new track areas, cultivate the national or municipal level scientific and technological innovation carriers, professional incubators, high-quality incubators, pilot platforms, accelerator full chain industrial service systems, and build high-quality concept verification centers and pilot bases with the institutions. With the industrial service system as the core, this District shall carry out vertical incubation, deep incubation, and advanced incubation, improve the integrated cultivation mechanism of "scientific and technological innovation space+incubator+accelerator+business buildings/industrial parks", provide entrepreneurial incubation, technology evaluation, property rights trading, achievement transformation, investment and financing services for the settled projects, and enhance the capacity level of entrepreneurial incubation.
11.Promoting digital empowerment of the carriers. This District shall fully utilize the "one map"of spatio-temporal dataand the data platforms and systems of the municipal departments such as the Quantum City Department, integrate the building economy comprehensive data platform already built in Jing'an District, and establish the "Jing'an District Digital Intelligent Management Platform of the Industrial Carriers". This District shallaccess the market data, further expand the coverage of the buildings and parks, promote the cross-departmental integration of the government management data, and achieve the digital integration of the comprehensive information such as geography, commerce, transportation, and the carriers. This District shall support the buildings and parks to utilize the technologies such as the Internet of Things, artificial intelligence+, and big data to expand their application scenarios, promote digitalization of their infrastructure, and enhance their capabilities and levels of intelligent management, smart services, and green low-carbon.
12.Promoting green and low-carbon transformation. This District shall adhere to the "dual carbon" goals, benchmark the existing building operation system evaluation standards at home and abroad such as LEED, WELL, and China's green building evaluation standards, promote green and low-carbon transformation of the buildings and parks, and establish the ESG benchmarks. This District shall build ultra-low energy buildings and near zero energy consumption buildings to improve the building energy efficiency. This District shall strengthen the utilization of the renewable energy, improve the energy efficiency, and reduce the greenhouse gas emissions. This District shall promote the classification, recycling, and resource utilization of the wastes, and guide the low-carbon production and lifestyle.
(5) Strengthening supervision, improving quality and efficiency
13.Strictly controlling the building division and transfer. This District shall strictly follow the land transfer contracts, establish and implement the relevant joint supervision and review mechanisms, and strictly control the sale, equity split, and transfer of the commercial buildings. For the commercial buildings that have been divided for sale or lease, the owners and operating units shall fulfill their main responsibilities and strictly prohibit the illegal adjustments for residential use. Each sub-district office and township government and functional area management committee shall strengthen their dynamic supervision and promote unified management.
14. Implementing full life-cycle management. For the renovating projects, the planning common elements shall be implemented, and the property ownership management and functional business format guidance shall be strengthened. For the industrial land projects, the management requirements for project construction, input, output, energy conservation, environmental protection, employment and other elements , as well as performance supervision and breach of contract disposal methods shall be stipulated. It is necessary to coordinate and organize all departments, sub-district offices and townships governments to implement the full life-cycle joint regulatory responsibilities, ensuring that all whole-life-cycle management requirements are applied across land use, construction management, real estate registration, environmental supervision, comprehensive law enforcement, industrial management, and other key stages, while strictly strengthening land performance evaluation and land exit management.
(6)Consolidating the supply of basic supporting facilities
15.Integrating the cultural and environmental resources. This District shall activate and utilize the historical and cultural resources, create the regional uniquespatial intentions, and introduce high-quality cultural, commercial, and leisure functions. This District shall make full use of the regional blue-green resources, make full connection and infiltration of the green water landscape resources with the buildings, improve the overall environmental quality of the buildings and parks, enhance the cultural heritage and ecological value of the business and industrial communities, so as to enhance the regional attractiveness, vitality, and comprehensive competitiveness.
16.Optimizing road network communication capability. This District shall promote the planned rail transit, municipal facility and road construction in the surrounding areas of the buildings and parks, break through the breakpoints of the slow traffic channels in the areas, build a continuous, vibrant and pleasant public space and slow moving network, and guide the improvement of the urban functions and spatial structure optimization via transportation. On the basis of the entrances and exits of the rail transit and bus stops, as well as the directions of the main entrances, this District shall construct an efficient, interconnected, multifunctional, and environmentally friendly all-weather three-dimensional slow moving system to improve the slow moving accessibility of the commercial buildings and industrial parks.
17.Improving the public service functions. This District shall, relying on the "15 minute living circle", and utilizing the public areas within the buildings and parks, enrich the living and working sceneswhile maintaining the bottom line functions such as fire safety and structural safety, by providing the small-scale supportingservice facilities such as catering, sports and leisure, and sharing economy in an embedded manner, and provide support in the application for their business licenses. This District shall encourage the opening and sharing of the first floor of the buildings, as well as the linkage of the indoor and outdoor spaces. This District shall support the addition of the necessary ancillary facilities and outdoor open public spaces in the buildings, encourage the composite utilization of the underground spaces that meet the requirements and conditions for multiple purposes. The setting of the commercial supporting service facilities in the parks shall be implemented in accordance with the relevant laws and regulations, and shall be decided by the District Park Upgrading and RenovationWorking Group.
III Guarantee Measures
The Office of Jing'an District Urban Renewal Leading Group shall, under the leadership of Jing'an District Urban Renewal Leading Group,take the lead in carrying out the work to strengthen the full life-cycle management of the buildings and parks viathe various methods such asestablishing management mechanisms, implementing industrial positioning, utilizing performance evaluation, and improving the support measures. This District shall further strengthen the collaborative cooperation among the "departments + sub-district offices and township government + functional zones + district-owned enterprises", and form a comprehensive professional guidance mechanism with the various departments such as those of market regulation, fire control, comprehensive law enforcement, and ecological environment to jointly promote the transformation and renewal of the buildings and parks in the wholeDistrict. The implementation rules shall be formulated under these Implementation Opinions to clarify the work standards, requirements and processes. This District shall strengthen its policy support, study and formulate the relevant supporting policies for the transformation and development of the buildings and parks. This District shall explore a variety of cooperation methods such as theMunicipality-District linkage, District-school cooperation, District-institute cooperation, state-owned and private enterprises cooperation, stimulate the autonomous will and enthusiasm of the property owners and operators to transformation and renewal, and improve the industrial agglomeration and output intensity of the buildings and parks. For the inefficient buildings and parks with mixed industrial functions and prominent potential safety hazards, guidance and management shall be strengthened to achieve the goal of vacating the spaces to change the users.