China’s manufacturing industry is entering a new phase of transformation, marked by the deep integration of advanced manufacturing with modern services. The Implementation Plan for Further Promoting the Innovation and Development of Service-Oriented Manufacturing (2025–2028), jointly issued by seven key ministries and national bodies, represents a coordinated effort to enhance the quality, efficiency, and value creation capacity of Chinese manufacturing. Service-oriented manufacturing (SOM) has emerged as a critical pathway for achieving industrial upgrading, technological innovation, and sustainable growth. It aligns with national strategies emphasizing innovation-driven development, digital transformation, and the construction of a modern industrial system.
Strategic Background and Policy Evolution
Since 2016, China has steadily advanced policies supporting the integration of services and manufacturing, including the Special Action Guidelines for the Development of Service-Oriented Manufacturing and the Guiding Opinions on Further Promoting the Development of Service-Oriented Manufacturing. Despite progress, challenges remain in areas such as technology supply, standardization, and statistical monitoring. The new Implementation Plan addresses these gaps, aiming to consolidate the foundation for a high-quality industrial ecosystem that fosters synergy between informatization and industrialization. By emphasizing reform, innovation, and coordination across multiple ministries, the plan seeks to establish a robust framework for the next stage of manufacturing development.
Development Goals for 2025–2028
The Implementation Plan outlines a comprehensive vision for 2028, emphasizing both qualitative and quantitative outcomes. By that year, service-oriented manufacturing is expected to play a stronger role in driving the high-quality development of the manufacturing sector. Specific goals include the formulation of 20 national standards, the establishment of 50 leading brands, and the creation of 100 innovation and development highlands. The plan envisions a mature ecosystem characterized by diversified business models, advanced digital integration, and widespread adoption of service-oriented practices across industries. This evolution will support the expansion of value chains, optimize resource allocation, and enhance China’s global competitiveness in manufacturing.
Core Tasks and Strategic Priorities
To achieve its objectives, the Implementation Plan defines seven primary tasks supported by three special action programs. The key priorities include strengthening technological research and model innovation, developing key productive service industries, expanding the application of service-oriented models, and building a unified and comprehensive standard system. The plan also highlights the need to foster vibrant business entities, cultivate industrial clusters and innovation hubs, and enhance digital infrastructure through technologies such as 5G, the industrial internet, and artificial intelligence. Together, these initiatives aim to create a resilient, interconnected, and technology-driven manufacturing ecosystem.
Shared Manufacturing and Resource Integration
One of the central themes of the plan is shared manufacturing—an innovative model designed to improve resource utilization and collaboration. By developing shared platforms and factories, enterprises can access common production facilities, inspection resources, and testing services, thereby reducing costs and increasing operational flexibility. This approach promotes “platform-based order-taking and multi-factory collaboration,” facilitating efficient coordination within industrial clusters and development zones. The integration of intelligent systems and digital platforms will further enhance transparency, traceability, and responsiveness across the manufacturing value chain.
Building Strong Industrial Brands
Brand development is a strategic component of service-oriented manufacturing. The Implementation Plan encourages enterprises to integrate services into product innovation and adopt holistic lifecycle management approaches. By 2028, China aims to cultivate 100 leading service-oriented manufacturing enterprises and establish 50 prominent brands. The plan also promotes the creation of regional brands that reflect local strengths and industrial characteristics. Strengthening brand evaluation, management, and promotion mechanisms will not only elevate domestic reputation but also enhance international competitiveness.
Driving Innovation Through Integrated Application Scenarios
Innovation demonstration actions are a practical method for accelerating the adoption of new technologies and business models. The plan promotes integrated application scenarios across three dimensions: production needs, consumer demand, and national strategic priorities. These initiatives encourage collaboration among enterprises, research institutions, and government agencies to develop replicable and scalable solutions. By facilitating the exchange of experiences and best practices, the plan aims to establish a platform for continuous innovation and application promotion, helping industries transition from isolated pilot projects to widespread implementation.
Cultivating Key Productive Service Industries
The development of productive service industries is essential to sustaining service-oriented manufacturing. These industries, including science and technology services, industrial design, software development, financial services, intellectual property, and environmental protection, provide the infrastructure that supports technological innovation and operational efficiency. By optimizing industrial ecosystems and promoting cross-sector collaboration, China seeks to strengthen the competitiveness of enterprises and stimulate high-value growth in emerging industries.
Enhancing Policy, Talent, and International Cooperation
Effective implementation of the plan depends on strong institutional support and human capital development. The government will enhance policy coordination, improve public services, and expand professional training programs to build a skilled workforce capable of managing service-oriented transformation. At the international level, China aims to deepen cooperation within global industrial and supply chains, particularly with Belt and Road partner countries. Through such engagement, China intends to promote mutually beneficial industrial collaboration and establish its position as a leader in global service-oriented manufacturing.
Conclusion: Building a Modern Service-Driven Manufacturing Ecosystem
The Implementation Plan for Further Promoting the Innovation and Development of Service-Oriented Manufacturing (2025–2028) marks a significant step in China’s industrial modernization agenda. By integrating advanced technologies, strengthening cross-sectoral collaboration, and fostering innovation-led growth, the plan seeks to redefine the structure and competitiveness of Chinese manufacturing. Its successful implementation will accelerate the transition from traditional production-oriented models to value-driven, service-enhanced manufacturing, laying the foundation for a more resilient, innovative, and globally competitive industrial economy.