2026年10月9日，《中共中央 国务院关于发展新质生产力的意见》正式发布。作为指导我国经济转型升级的顶层设计文件，意见系统回答了什么是新质生产力、为什么要发展新质生产力以及如何发展新质生产力等关键问题，释放出加快摆脱传统增长路径、依靠创新和效率实现高质量发展的明确信号。
一段时间以来，我国经济增长较多依靠劳动力、土地、资源和大规模投资投入，工厂规模扩张和项目铺开就能较快拉动总量。但这种模式资源消耗大、产品附加值偏低，长期靠拼成本和拼规模参与国际竞争。新质生产力正是要跳出这一路径，以技术进步、创新升级和效率提升为驱动，具有高技术、高效能、高质量特征，核心标志是全要素生产率大幅提升。通俗地说，就是用同样的人力、同样的资源，生产出价值更高、质量更好的产品和服务。
针对社会上的一些理解偏差，意见特别明确，新质生产力并非只属于人工智能、低空经济、生物制造等新兴赛道。传统制造业通过数字化、智能化、绿色化改造实现提质增效，同样属于培育新质生产力。文件强调“先立后破”，不是把老产业简单推倒，而是老产业升级、新产业壮大，两条腿走路，避免出现盲目跟风、抛弃实体经济现象。这为各地在推动新旧动能转换中提供了清晰边界。
为什么要发展新质生产力？从外部看，新一轮科技革命和产业变革加速到来，全球产业竞争日趋激烈，单纯依靠低成本加工制造的路子已经走不通，部分国家在高端技术、产业链上设置壁垒，沿用旧模式将使发展空间越来越受限。从国内看，人口、资源、环境条件发生深刻变化，粗放式扩张难以为继；居民需求也在升级，不再只追求数量，更加看重产品品质、技术含量和绿色安全。因此，发展新质生产力不是可选项，而是推动高质量发展的必选项，是我国经济从“有没有”转向“好不好”的关键抓手。
意见部署了多个方面的重点任务。在科技创新上，国家将加强原创性、颠覆性技术攻关，破解一批关键核心技术难题，统筹各类战略科技力量。同时突出企业的创新主体地位，支持领军企业牵头组建创新联合体，扶持专精特新中小企业，打通从基础研究、中试试验到产业化落地的链条，让实验室技术真正转化为现实生产力。这种全链条安排，旨在解决科研与产业“两张皮”问题。
此外，意见强调因地制宜、分类施策，防止一哄而上、重复建设。各地应结合自身产业基础和资源禀赋，找准切入点和突破口，既要发展战略性新兴产业，也要用新技术改造提升传统产业，形成差异化竞争格局。只有真正提升全要素生产率，才能把新质生产力从概念转化为推动经济持续回升向好的实际动力。
可以预见，随着顶层设计落地，新质生产力将从理念共识加速进入地方实践和行业行动阶段。对于企业而言，创新能力和效率水平将成为更核心的竞争指标；对于地方政府而言，如何平衡“立”与“破”、避免脱实向虚，将考验治理智慧。这份意见为未来一段时期中国经济转型升级标定了方向，也为市场预期提供了稳定锚点。
On October 9, 2026, the "Opinions of the Central Committee of the Communist Party of China and the State Council on Developing New Quality Productive Forces" was officially released. As a top-level design document guiding China's economic transformation and upgrading, the Opinions systematically answer key questions such as what new quality productive forces are, why they should be developed, and how to develop them, sending a clear signal to accelerate the shift away from traditional growth paths and rely on innovation and efficiency to achieve high-quality development.
For some time, China's economic growth has relied heavily on inputs of labor, land, resources, and large-scale investment; expanding factory scale and launching projects could quickly boost aggregate output. However, this model consumes substantial resources and yields products with relatively low added value, relying on competing internationally through low costs and scale over the long term. New quality productive forces are precisely meant to break away from this path, driven by technological progress, innovation-driven upgrading, and efficiency gains, characterized by high technology, high efficiency, and high quality, with a core hallmark of substantial improvement in total factor productivity. In plain terms, it means using the same labor and the same resources to produce goods and services of higher value and better quality.
In response to some misunderstandings in society, the Opinions specifically clarify that new quality productive forces are not limited to emerging tracks such as artificial intelligence, the low-altitude economy, or biomanufacturing. Traditional manufacturing industries that achieve quality and efficiency improvements through digital, intelligent, and green transformation also count as cultivating new quality productive forces. The document emphasizes "establishing the new before abolishing the old," meaning not simply tearing down old industries, but upgrading old industries while expanding new ones—walking on two legs—to avoid blind herd behavior and abandoning the real economy. This provides clear boundaries for localities in promoting the transition between old and new growth drivers.
Why develop new quality productive forces? Externally, a new round of technological revolution and industrial transformation is accelerating, global industrial competition is becoming increasingly fierce, and the path of relying solely on low-cost processing and manufacturing is no longer viable. Some countries are erecting barriers in high-end technologies and industrial chains, and sticking to the old model will increasingly constrain development space. Domestically, profound changes have occurred in population, resources, and environmental conditions, making extensive expansion unsustainable; residents' demands are also upgrading, no longer pursuing quantity alone but placing greater emphasis on product quality, technological content, and green safety. Therefore, developing new quality productive forces is not an option but a necessity for promoting high-quality development, and a key lever for China's economy to shift from "whether there is enough" to "whether it is good enough."
The Opinions lay out key tasks in multiple areas. In scientific and technological innovation, the state will strengthen original and disruptive technological breakthroughs, tackle a number of core technologies in key fields, and coordinate various strategic scientific and technological forces. At the same time, it highlights the principal role of enterprises in innovation, supports leading enterprises in taking the lead to form innovation consortia, supports specialized and sophisticated SMEs, and connects the chain from basic research and pilot testing to industrialization, so that laboratory technologies can truly be transformed into real productive forces. This whole-chain arrangement aims to solve the problem of "two skins" between research and industry.
In addition, the Opinions emphasize adapting measures to local conditions and implementing differentiated policies to prevent rushing headlong into projects and redundant construction. Localities should identify entry points and breakthroughs based on their own industrial foundations and resource endowments, both developing strategic emerging industries and using new technologies to transform and upgrade traditional industries, forming a pattern of differentiated competition. Only by genuinely improving total factor productivity can new quality productive forces be transformed from a concept into a real driving force for sustained economic recovery and improvement.
It is foreseeable that with the implementation of the top-level design, new quality productive forces will accelerate from a consensus of ideas to local practice and industry action. For enterprises, innovation capability and efficiency levels will become more core competitive indicators; for local governments, how to balance "establishing" and "abolishing" and avoid drifting from the real to the virtual will test governance wisdom. This document sets the direction for China's economic transformation and upgrading in the coming period and provides a stable anchor for market expectations.