State Council’s Opinions on Deepening the Implementation of the ‘AI+’ Initiative
State Council’s Opinions on Deepening the Implementation of the ‘AI+’ Initiative
Guo Fa [2025] No. 11
To the People’s Governments of all provinces, autonomous regions, and municipalities directly under the Central Government, and to all ministries and commissions of the State Council:
In order to deeply implement the ‘AI+’ initiative, promote the extensive and deep integration of artificial intelligence with various industries and fields of the economy and society, reshape the paradigm of human production and life, promote a revolutionary leap in productivity and profound changes in production relations, and accelerate the formation of a new intelligent economy and intelligent society characterized by human-machine collaboration, cross-border integration, and co-creation and sharing, the following opinions are hereby proposed.
1. Overall Requirements
Guided by Xi Jinping’s Thought on Socialism with Chinese Characteristics for a New Era, fully and accurately implement the new development concept, adhere to the people-centered development philosophy, leverage China’s advantages in rich data resources, a complete industrial system, and broad application scenarios, strengthen forward-looking planning, systematic layout, differentiated policies, open sharing, and security control, focusing on technology, industry, consumption, people’s livelihood, governance, and global cooperation, deeply implement the ‘AI+’ initiative, and foster a batch of new infrastructure, new technology systems, new industrial ecosystems, and new jobs, accelerating the cultivation and development of new quality productive forces, enabling all people to share the fruits of AI development, and better serving the construction of Chinese-style modernization.
By 2027, we aim to achieve extensive and deep integration of AI with six key areas, with the penetration rate of new generation intelligent terminals and intelligent agents exceeding 70%, rapid growth in the scale of core industries of the intelligent economy, a significant enhancement of AI’s role in public governance, and continuous improvement of the AI open cooperation system. By 2030, AI will fully empower high-quality development, with the penetration rate of new generation intelligent terminals and intelligent agents exceeding 90%, making the intelligent economy an important growth pole of China’s economic development, promoting technological inclusiveness and sharing of achievements. By 2035, China will fully enter a new stage of development in the intelligent economy and intelligent society, providing strong support for the basic realization of socialist modernization.
2. Accelerate Key Actions
(1) ‘AI+’ Science and Technology
1. Accelerate the process of scientific discovery.Accelerate the exploration of new research paradigms driven by AI, speeding up the process of major scientific discoveries from ‘0 to 1’. Accelerate the construction and application of large scientific models, promote the intelligent upgrade of basic research platforms and major scientific infrastructure, create high-quality scientific datasets that are open and shared, and enhance the level of complex scientific data processing across modalities. Strengthen the interdisciplinary driving role of AI and promote the integrated development of multiple disciplines.
2. Drive innovation in technology R&D models and efficiency improvements.Promote the integrated and collaborative development of AI-driven technology R&D, engineering realization, and product landing, accelerate the landing and iterative breakthroughs of technologies from ‘1 to N’, and facilitate the efficient transformation of innovative achievements. Support the promotion and application of intelligent R&D tools and platforms, strengthen technological collaborative innovation between AI and fields such as biomanufacturing, quantum technology, and sixth-generation mobile communication (6G), using new research results to support the landing of application scenarios and new application demands to drive breakthroughs in technological innovation.
3. Innovate research methods in philosophy and social sciences.Promote the transformation of research methods in philosophy and social sciences towards human-machine collaborative models, explore the establishment of new organizational forms for research in philosophy and social sciences that adapt to the AI era, and expand research perspectives and observational horizons. Conduct in-depth studies on the profound impacts and mechanisms of AI on human cognition, ethical norms, etc., and explore the formation of a theory system for the benevolence of AI, promoting AI to better benefit humanity.
(2) ‘AI+’ Industry Development
1. Cultivate new models and new formats of intelligent origin.Encourage qualified enterprises to integrate AI into strategic planning, organizational structure, business processes, etc., promote the intelligent development of all elements in the industry, assist in the transformation and upgrading of traditional industries, and open up new tracks for the development of strategic emerging industries and future industries. Vigorously develop intelligent origin technologies, products, and service systems, accelerate the cultivation of a batch of intelligent origin enterprises based on AI’s underlying architecture and operational logic, explore new business models, and give rise to new formats of intelligent origin.
2. Promote the intelligent development of all elements in industry.Promote the intelligent linkage of all elements in industry, accelerate the application of AI in design, pilot testing, production, service, and operation. Focus on enhancing the AI literacy and skills of all employees, and promote the formation of more reusable expert knowledge across industries. Accelerate breakthroughs in industrial software innovation, vigorously develop intelligent manufacturing equipment, promote intelligent collaboration in industrial supply chains, and strengthen adaptive supply-demand matching. Promote AI-driven production process optimization methods. Deepen the integrated application of AI and the industrial internet, enhancing the intelligent perception and decision-making capabilities of industrial systems.
3. Accelerate the digital and intelligent transformation and upgrading of agriculture.Accelerate the innovation of breeding systems driven by AI, supporting intelligent applications in agriculture such as planting and breeding. Vigorously develop intelligent agricultural machinery, agricultural drones, agricultural robots, and other intelligent equipment, improving the intelligent perception, decision-making, control, and operational capabilities of agricultural production and processing tools, and strengthening the platform-based and intelligent management of agricultural machinery and tools. Enhance the application of AI in agricultural production management, risk prevention, etc., helping farmers improve their production and operational capabilities and levels.
4. Innovate new service industry development models.Accelerate the evolution of the service industry from digitally empowered internet services to intelligent-driven new service methods, expand the scope of operations, and promote the intelligent and new development of modern service industries. Explore new models that combine unmanned services with human services. In fields such as software, information, finance, business, law, transportation, logistics, and commerce, promote the widespread application of new generation intelligent terminals and intelligent agents.
(3) ‘AI+’ Quality Improvement in Consumption
1. Expand new scenarios for service consumption.Cultivate a wider range of intelligent service formats with richer content, accelerate the development of efficiency-enhancing and companion-type intelligent applications, and support the opening of new entry points for intelligent assistants. Strengthen the construction of intelligent consumption infrastructure, improve the quality of life services such as culture and entertainment, e-commerce, housekeeping, property management, transportation, elderly care, and childcare, and expand new service consumption scenarios such as experiential consumption, personalized consumption, and cognitive and emotional consumption.
2. Cultivate new formats of product consumption.Promote the intelligent terminal’s ‘Internet of Everything’, cultivate an intelligent product ecosystem, vigorously develop new generation intelligent terminals such as intelligent connected vehicles, AI smartphones and computers, intelligent robots, smart homes, and wearable devices, creating an integrated intelligent interaction environment covering all scenarios. Accelerate the integration of AI with technologies such as the metaverse, low-altitude flight, additive manufacturing, and brain-computer interfaces, exploring new forms of intelligent products.
(4) ‘AI+’ Welfare for People’s Livelihood
1. Create smarter ways of working.Actively leverage AI’s role in creating new jobs and empowering traditional positions, explore new organizational structures and management models for human-machine collaboration, cultivate and develop innovative work forms such as intelligent agents, and promote applications in labor-scarce and high-risk environments. Strongly support AI skills training, stimulate innovation and entrepreneurship in AI, and re-employment vitality. Strengthen the assessment of employment risks associated with AI applications, guiding innovative resources towards directions that create significant employment potential, and reducing the impact on employment.
2. Promote more effective learning methods.Integrate AI into all elements and processes of education and teaching, innovate new human-machine collaborative education and teaching models such as intelligent companions and intelligent teachers, promote a shift from knowledge transmission to capability enhancement in education, accelerate the realization of large-scale personalized education, improve education quality, and promote educational equity. Construct intelligent interactive learning models, promoting more flexible methods and richer resources for autonomous learning. Encourage and support the public to actively learn new knowledge and technologies related to AI.
3. Create a higher quality of life.Explore and promote high-level health assistants accessible to all residents, orderly promote the application of AI in auxiliary diagnosis, health management, and medical insurance services, significantly improving the capacity and efficiency of grassroots medical and health services. Promote AI’s greater role in enriching cultural production, enhancing cultural dissemination, and facilitating cultural exchange, using AI to assist in creating more cultural content with elements and symbols of Chinese culture, and expanding the cultural industry. Fully leverage AI’s importance in weaving interpersonal relationships, providing spiritual comfort and companionship, assisting the elderly and disabled, and promoting national fitness, expanding AI’s application in the entire lifecycle of ‘good housing’, and actively building a warmer intelligent society.
(5) ‘AI+’ Governance Capability
1. Create a new picture of human-machine symbiosis in social governance.Orderly promote the intelligent transformation and upgrading of municipal infrastructure, explore urban planning, construction, and governance oriented towards new generation intelligent terminals, and enhance the intelligent level of urban operations. Accelerate the extension of AI products and services to rural areas, promoting intelligent inclusiveness in urban and rural areas. Deepen the social experiments of AI. Safely and steadily promote the application of AI in government affairs, creating a new model of government services characterized by precise identification of needs, proactive planning of services, and fully intelligent processing. Accelerate the application of AI in various public resource bidding activities, enhancing the level of intelligent transaction services and supervision.
2. Create a new pattern of multi-party governance for safety governance.Promote the construction of a public safety governance system that integrates natural persons, digital persons, and intelligent robots, strengthen the application of AI in safety production supervision, disaster prevention and mitigation, public safety early warning, and social security management, enhance the levels of monitoring and early warning, regulatory enforcement, command decision-making, on-site rescue, and social mobilization, and strengthen the ability of AI to maintain and shape national security. Accelerate the empowerment of AI in cyberspace governance, enhancing capabilities for precise information identification, proactive situation assessment, and real-time risk handling.
3. Co-create a new picture of ecological governance for a beautiful China.Enhance the integrated dynamic perception of air, land, sea, and the intelligent planning of national territory, strengthening the optimization of resource allocation. Focus on multi-factor ecological environment systems such as air, water, ocean, soil, and biology, and the construction of a national carbon market, enhancing AI-driven capabilities in monitoring, forecasting, simulation, and problem-solving, and promoting the establishment of an intelligent collaborative precision governance model.
(6) ‘AI+’ Global Cooperation
1. Promote the inclusive sharing of AI.Position AI as an international public good that benefits humanity, creating an open ecosystem for AI capacity building characterized by equality, mutual trust, diversity, and win-win cooperation. Deepen high-level openness in the field of AI, promote the accessibility of AI technology through open-source, strengthen international cooperation in computing power, data, and talent, assist global southern countries in strengthening AI capacity building, and help all countries participate equally in the process of intelligent development, bridging the global AI gap.
2. Co-build a global governance system for AI.Support the United Nations in playing a leading role in global governance of AI, explore the formation of a governance framework with broad participation from various countries, and jointly address global challenges. Deepen exchanges and cooperation with international organizations and professional institutions, strengthen coordination on governance rules, technical standards, etc. Jointly assess and actively respond to the risks of AI applications, ensuring that AI development is safe, reliable, and controllable.
3. Strengthen foundational support capabilities
(7) Enhance foundational model capabilities.Strengthen research on the foundational theories of AI, support multi-path technology exploration and foundational architecture innovation. Accelerate the research of more efficient model training and inference methods, actively promote the coordinated development of theoretical innovation, technological innovation, and engineering innovation. Explore new forms of model applications, enhance the ability to handle complex tasks, and optimize interaction experiences. Establish and improve a model capability evaluation system to promote effective iteration and enhancement of model capabilities.
(8) Strengthen innovation in data supply.Application-oriented, continuously strengthen the construction of high-quality datasets for AI. Improve the data property and copyright systems that adapt to AI development, promote the legal and compliant opening of copyright content formed by publicly funded projects. Encourage exploration of data cost compensation and revenue-sharing methods based on value contribution, strengthening incentives for data supply. Support the development of data labeling, data synthesis, and other technologies, and cultivate and expand the data processing and data service industry.
(9) Strengthen the overall coordination of intelligent computing power.Support innovation in AI chips and the cultivation of enabling software ecosystems, accelerate breakthroughs in ultra-large-scale intelligent computing cluster technologies and engineering implementation. Optimize the national intelligent computing resource layout, improve the national integrated computing power network, fully leverage the role of the national hub of ‘East Data West Computing’, and enhance the collaboration of data, computing, electricity, and networks. Strengthen the interconnectivity and supply-demand matching of intelligent computing power, innovate operational models for intelligent computing infrastructure, encourage the development of standardized and scalable cloud computing services, and promote the supply of intelligent computing power to be inclusive, easy to use, economically efficient, and green and safe.
(10) Optimize the development environment for applications.Plan and build a number of national AI application pilot bases, and establish common platforms for industry applications. Promote the intelligent transformation of software information service enterprises, reconstruct product forms and service models. Cultivate AI application service providers, develop ‘model as a service’, ‘intelligent agent as a service’, etc., and create a service chain for AI applications. Improve guidelines for building AI application scenarios, evaluation of openness, and incentive policies, and enhance the management system for trial and error in applications. Strengthen the protection, transformation, and collaborative application of intellectual property rights. Accelerate the formulation of AI standards in key areas, and promote the linkage of standards across industries, fields, and internationally.
(11) Promote the prosperity of the open-source ecosystem.Support the construction of AI open-source communities, promote the aggregation and opening of models, tools, datasets, etc., and cultivate high-quality open-source projects. Establish and improve evaluation and incentive mechanisms for contributions to open-source AI, encouraging universities to include open-source contributions in student credit certification and faculty achievement recognition. Support enterprises, universities, and research institutions to explore inclusive and efficient new models for open-source applications. Accelerate the construction of a globally open open-source technology system and community ecosystem, and develop internationally influential open-source projects and development tools.
(12) Strengthen talent team building.Promote AI education across all levels and general education for the whole society, improve the layout of disciplines and majors, increase the training of high-level talents, and create new models for cultivating leading talents in an unconventional manner, strengthen faculty construction, promote integration of industry and education, interdisciplinary training, and international cooperation. Improve a diversified evaluation system that aligns with the professional attributes and job characteristics of AI talents, better leverage the role of leading talents, provide greater space for young talents to showcase their abilities, and encourage active exploration in AI’s ‘unmanned zones’. Support enterprises in effectively utilizing equity, options, and other long-term incentive methods to attract, retain, and utilize talents.
(13) Strengthen policy and legal guarantees.Improve the assessment and evaluation systems for state capital investment in the AI field and risk supervision. Increase financial and fiscal support in the AI field, develop and expand long-term capital, patient capital, and strategic capital, improve risk-sharing and investment exit mechanisms, and fully leverage the role of fiscal funds and government procurement policies. Improve laws and regulations related to AI, ethical guidelines, etc., and promote legislative work related to the healthy development of AI. Optimize safety assessment and filing management systems related to AI.
(14) Enhance safety capability levels.Promote the construction of safety capabilities for model algorithms, data resources, infrastructure, and application systems, prevent risks arising from model black boxes, hallucinations, and algorithmic discrimination, strengthen forward-looking assessments and monitoring and handling, and promote compliance, transparency, and trustworthiness in AI applications. Establish and improve monitoring, risk warning, and emergency response systems for AI technology, strengthen government guidance and industry self-discipline, adhere to inclusive prudence and classification and grading, and accelerate the formation of a dynamic, agile, and multi-faceted AI governance pattern.
5. Organizational Implementation
Adhere to the Party’s leadership throughout the entire process of the ‘AI+’ initiative. The National Development and Reform Commission should strengthen overall coordination and promote the formation of a collaborative effort. All regions and departments should closely combine with actual conditions, implement measures tailored to local circumstances, and ensure effective implementation. Strengthen demonstration and guidance, timely summarize and promote successful experiences. Enhance publicity and guidance, widely gather social consensus, and create a good atmosphere for the whole society to participate.
State Council
August 21, 2025