IATS 17th Seminar 2026
presentation delivered 25 August 2026
Gabriel Lafitte, https://www.rukor.org , with research documentation by Shede Dawa, Tibet Watch
[Personal note: This presentation was proposed and accepted into IATS, but I did not proceed with registration, out of concern that the host nation might construe the topic as political, to IATS’ detriment. IATS was nonetheless cancelled by the host nation, so I now proceed.]
Tibetan lamas sometimes refer to the 1950s as a change of times, an understated metaphor signifying rupture. Old certainties crumble, foundational commitments are swept aside, a new order prevails; Tibetans are suddenly precipitated into global transit.
If there is one corner of the vast Tibetan Plateau barely touched until now by this zeitenwende it is the Pemako hidden land, of the forested mountains of the lower Yarlung Tsangpo, surrounding Namche Barwa, the sacred syntaxis of the entire Himalaya range. Many eminent Tibetologists have plunged into the visions, treasures, revelations, poetry, songs and pilgrimage guides generated by centuries of practitioners attuned to nature in this warmest, wettest and most vertical of all Tibetan lands, a subtropical corner of extraordinary biodiversity, the farthest from the Equator of any tropic.
This remarkably biodiverse corner of Tibet inspired Dudjom Lingpa, Gyurmé Ngedön Wangpo, Jatson Nyingpo, to compose their many pilgrimage guidebooks, songs and poems, visions and transformative practice manuals. The Dudjom Tersar program of training in awakening now recruits practitioners worldwide.
The change of times is arriving in Pemako. Drawing on two official master plan documents, this is a sketch of how China plans to transform this beyul hidden land into a frontier of modernity, remaking a remote district a powerhouse capable of transforming economy, livelihoods, industrialisation and urbanisation on a scale that impacts all of central Tibet.
The two key documents are the “Outline of the 15th Five-Year Plan for National Economic and Social Development of Nyingtri City”, issued by Nyingtri Municipal Development and Reform Commission 8 June 2026[1]; and “Yarlung Tsangpo Hydropower Station: The Strategic Value and Comprehensive Analysis of a Project of the Century” published 25 August 2025.[2] These lengthy, detailed documents specify many transformations to be installed in coming years.
At the highest level China is committed to implementation.
Although heavy equipment has not yet moved in, the cancellation of this beyul is already evident, especially in the program of displacement of Metokpa, compulsorily resettled in new prefabricated frontier villages.[3] Since 2024 the pace of exclosure has gradually intensified, in accordance with the many regulations stipulating removal of local communities from designated construction zones in lands requisitioned for installations of state. Eviction of villagers is so routinised, not only in the name of poverty and precarity alleviation, but more broadly as a pedagogy of civilising mission. The big character slogans draped over the trucks announce the mandatory emotions of the displaced: “grateful for relocation, embracing new life” and “move early, benefit early.”
Displacement and exclusion have been done, well in advance of infrastructure construction. The Nyingtri Five Year Plan decrees: “Carefully carry out resettlement work for relocated residents, and steadily advance land acquisition, demolition, and relocation. Scientifically organize local residents to participate in construction, better combining project construction with promoting employment and income growth for the masses, and continuously enhancing the sense of gain, happiness, and security of relocated residents.”
Official slogans routinely depict local livelihoods in this abundantly warm and wet hidden land as intractably precarious, poverty stricken, backward. An August 2026 official media article on training Metok villagers in basic labour-intensive concreting construction skills is headlined: “Work-for-Relief Projects Pave the Way to Prosperity 以工代赈铺筑富民路Endogenous Motivation Activates New Rural Development 内生动力激活新乡村.”[4] The curriculum “cultivated villagers’ skills, transformed their mindset, optimized their income structure, and improved the village’s appearance through practical work, revitalized the village’s endogenous development momentum and injected lasting vitality into building a liveable, workable, and beautiful countryside. Traditional farming and animal husbandry were susceptible to extreme weather and disease, and the income from forest resources was subject to climate conditions and market fluctuations. The villagers’ reliance on the weather for their livelihood was significant, leading to considerable income uncertainty. Previously, villagers’ income heavily relied on traditional farming, animal husbandry, and forestry gathering, a passive and highly volatile income model. Natural disasters, epidemics, and market downturns could severely impact household finances. Now, income from migrant work has become a new and stable source of income for the entire village. This has completely reversed the passive situation where income was entirely dependent on nature and the market, freeing villagers from livelihood anxieties. In the past, some villagers had narrow-minded ideas about increasing income, overly relying on natural resources under the forest canopy, and harbouring a passive mentality of “waiting, relying, and demanding,” lacking initiative in starting businesses and developing independently. The villagers’ mindset has undergone a fundamental change. This positive and virtuous force rooted in the hearts of the people has become a valuable spiritual asset driving the comprehensive revitalization of the countryside.
“Stimulate the enthusiasm of the whole society to participate in the implementation of the plan, and maximize the consensus and strength of the whole society.”
Now the Tibetans and Monpa have a new spiritual asset. What will become of the older spiritual assets of this hidden land?
A beyul with inhabitants cannot support retreatants. A beyul transected by highways, headrace tunnels, turbines and power grids is no longer a beyul. A Pemako beyul designed to attract millions, probably tens of millions, of Chinese tourists annually, is no longer a beyul. This is explicitly included in the published master plan; not speculation. China’s master plan for the entire project is remarkably detailed, its’ targets and timelines explicit. Selected excerpts: “The ‘Nyingtri-Metog’ highway (346 km long) will be upgraded and expanded, transforming the original gravel road into a Class II highway, reducing travel time from 12 hours to 4 hours; a new ‘Pai Town-Beibeng’ tourist highway (85 km long) will be built, connecting the Yarlung Tsangpo Grand Canyon scenic area;
“Railways: The ‘Sichuan-Tibet Railway Branch Line – Nyingtri-Metog Railway’ (180 km long) is planned and constructed, expected to open to traffic in 2030. At that time, Medog County will end its history of being ‘without railway access’ and freight transportation costs will be reduced by 60%; Tourism industrial cluster: Tourism resources such as the Yarlung Tsangpo Grand Canyon and the Metog Secret Realm will be upgraded with the help of improved transportation. The plan includes the construction of a ‘Hydropower-themed tourist area’ (including a hydropower station viewing platform, a science museum, and experiential rafting, which is expected to increase the annual number of tourists visiting southeastern Tibet from 8 million in 2024 to 30 million by 2035, with tourism revenue exceeding 20 billion yuan.
“Industrial cultivation: transformation from “blood transfusion” to “blood production.” Project construction will drive the formation of “three major industrial clusters” in southeastern Tibet.”
Metok Secret Realm is now designated as a marketing brand, targeting China’s huge urban population exhausted by relentless city competition, seeking a nurturing, rejuvenating resort destination to recover. Since Lhasa receives 63 million domestic Chinese tourists a year, a target of 30 million stopping over in Metok and Nyingtri is entirely possible. This puts Metok on par with Portugal, Malaysia, Hong Kong, Netherlands or India as tourism destinations.
Nyingtri Five Year Plan: “Promote a fundamental shift in the integration of culture and tourism from simple superposition to deep integration, and strengthen the value enhancement of cultural resources for the tourism industry. By 2030, the cumulative number of domestic and international tourists will reach over 22 million, with total tourism expenditure exceeding 20 billion yuan.
“Improve the ecological sightseeing infrastructure and reception capacity of the Namcha Barwa Peak ecological corridor and the G318 highway and G219 corridors. Develop high-quality tourism routes systematically based on high-quality red, ecological, and cultural resources. Promote the brand awareness and influence of “Pure Land on Earth, Enchanting Nyingtri,” and enhance the “Peach Blossom” brand…. comprehensively covering mass tourism and customized needs, and promoting Nyingtri’s transformation and upgrading from a single sightseeing destination to a comprehensive and in-depth tourism destination.
“Build Nyingtri into a modern people’s city on the plateau that is innovative, livable, beautiful, resilient, civilized, and intelligent. Implement actions to improve the level of urbanization in counties, focus on each county, promote urbanization construction …..promote the clustering of advantageous projects and enterprises in key industrial parks, and cultivate county development power sources with high concentration of factors of production and outstanding comparative advantages around advantageous industries. Upgrade industrial cultivation, enhance the comprehensive carrying capacity of the county, and absorb industry and population agglomeration.”
In brief, official plans for the lower Yarlung Tsangpo project go well beyond tunnels and dams, including a high speed rail line branching from the Shanghai-Chengdu-Nyingtri-Lhasa high speed line due for completion in 2030[5]. Both Metok and Nyingtri are promoted as beautiful destinations, restorative landscapes, antidotes to big city stress, nostalgically reminiscent of what southern China -Jiangnan- used to signify prior to pervasive industrialisation.[6]
China has promoted Nyingtri and the Namche Barwa/Metok beyul for several years as being quite unlike Tibet, a must-visit. Until now mass transit access was missing. Nyingtri is already accessible from Lhasa by fast rail, and heavily promoted as the new Jiangnan.[7] A classic north Chinese romantic projection gazing at south China is now projected westwards, remaking Tibet China’s.
China’s ambitions are bold, the policy prescriptions of the Five Year Plan much more detailed than in previous Plans. Much more than heavy infrastructure construction is announced. “The Yarlung Tsangpo Hydropower Project has commenced construction, the integrated hydropower, wind, and solar power base in southeastern Tibet is progressing smoothly, and the installed capacity of clean energy continues to increase. The cultural and tourism industry is developing in an integrated manner, with a significant improvement in the quality of cultural and tourism products. The brand awareness and influence of ‘Nyingtri, a Pure Land on Earth’ are continuously expanding, and the slogan ‘Nyingtri, a Paradise on Earth’ is gaining popularity.”
[1]https://www.linzhi.gov.cn/zfxxgkpt/c106771/202607/633ff926e5fe40a18dde21513b635988.shtml
[2] https://mp.weixin.qq.com/s/BjcV1QhJb-nYY83K9hcsSQ
https://www.xizang.gov.cn/xwzx_406/ztzl_416/cxzt/fpgj/201901/t20190117_49380.html
https://linzhi.gov.cn/linzhi/xwzx/202511/4e9e25687d014bf3ba216eb771aeb9fe.shtml
https://mp.weixin.qq.com/s/SpbGtSl27N-dCWylQ5soaA
https://mp.weixin.qq.com/s/Bgi3RIFquYwaknfz72zHZg
https://mp.weixin.qq.com/s/apVQo3RrdLiA1rjTIEAf_A
[4] https://mp.weixin.qq.com/s/XWDDaPiAmra6M5w-T4d4_Q
[5] Wei We et al, Comprehensive impacts of high-speed rail and air transport on tourism development in China, Transportation Research Part A 190 (2024) 104263
Zhenhua Chen et al, High Speed Rail and China’s New Economic Geography, Elgar, 2019
[6] https://mp.weixin.qq.com/s/lD6D7HQrldHZP7HuQvinVg https://www.news.cn/multimediapro/20210817/63eebc194fee4ae18660871d13a6bc06/c.html
https://linzhi.gov.cn/linzhi/xwzx/202511/4e9e25687d014bf3ba216eb771aeb9fe.shtml
[7] https://www.jiemian.com/article/14566521.html
CHINA’S MASTER PLAN
Outline of the 15th Five-Year Plan for National Economic and Social Development of Nyingtri City
https://www.linzhi.gov.cn/zfxxgkpt/c106771/202607/633ff926e5fe40a18dde21513b635988.shtml
Editor: Dazhen Source: Nyingtri Municipal Development and Reform Commission Published: 2026-06-08 Views: 815
Outline of the 15th Five-Year Plan for National Economic and Social Development of Nyingtri City
Nyingtri Municipal People’s Government
June 2026
Table of Contents
Chapter 1 Development Environment
Section 1 Development Achievements
Section 2: Current Situation
Chapter 2: Overall Requirements
Section 1: Guiding Ideology
Section 2: Working Principles
Section 3: Development Positioning
Section 4: Main Objectives
Chapter 3: Building a Community of Shared Future for the Chinese Nation and Fortifying the National Security Barrier
Section 1: Promoting the Construction of a Community of Shared Future for the Chinese Nation
Section 2: Strengthening the National Security System and Capabilities
Section 3: Adhering to the Direction of Sinicization of Tibetan Buddhism
Section 4: Actively Promoting the Construction of Spiritual Civilization
Section 5: Comprehensively Improving the Level of Social Governance
Section 6: Enhancing Public Security Governance Capabilities
Chapter 4: Building a Pioneer Zone for Reform and Opening Up and Stimulating the Vitality of Economic and Social Development
Section 1: Continuously Deepening Paired Assistance and Cooperation
Section 2: Continuously Deepening Reforms in Key Areas
Section 3: Actively Building an Opening-up Pattern
Chapter 5: Serving and Guaranteeing the and Building a National Important Clean Energy Base
Section 1: Strengthening Full-Process Service and Guarantee
Section 2: Promoting the Development of Clean Energy in the City
Section 3: Enhancing the Stable Operation Capabilities of the Power Grid
Chapter 6: Strengthening Technological Innovation-Driven Development and Building a High Ground for Technological Innovation
Section 1: Promoting the Integrated Development of Scientific Research and Education
Section 2 Strengthening Collaborative Development of Science and Technology Industries
Section 3: Optimizing the Development of Innovative Talent Teams
Chapter 7: Optimizing the Plateau Characteristic Industrial System and Building an Industrial Innovation Hub 40
Section 1: Improving the Quality and Efficiency of Traditional Characteristic Industries
Section 2: Actively Building a Green Industrial Base
Section 3: Laying Out Emerging and Future Industries
Section 4: Enhancing the Quality of Modern Service Industries
Section 5: Optimizing the “One Zone, Multiple Parks” Pattern of the Economic Development Zone
Chapter 8: Integrating Services into the New Development Pattern and Improving the Modern Market System
Section 1: Implementing Actions to Boost Consumption
Section 2: Actively Expanding Effective Investment
Section 3: Creating a First-Class Business Environment
Chapter 9: Strengthening Support for High-Quality Development and Consolidating the Infrastructure System 55
Section 1: Strengthening the Comprehensive Transportation System
Section 2: Constructing New Infrastructure
Section 3: Improving Safe Water Conservancy Facilities
Chapter 10: Optimizing Spatial Structure and Shaping the “One Core, Three Belts, Five Clusters” Pattern 62
Section 1: Enhancing the Driving Capacity of the “One Core”
Section 2: Strengthening the Leading Role of the “Three Belts”
Section 3: Promoting the High-Quality Development of the “Five Clusters”
Chapter 11 Deepening Urban-Rural Integration and Promoting New-Type Urbanization and Rural Revitalization 67
Section 1: Promoting New-Type Urbanization
Section 2: Enhancing the Carrying Capacity of County Towns
Section 3: Promoting Urban-Rural Integration
Section 4: Building Harmonious and Beautiful Plateau Villages
Chapter 12: Improving People’s Well-being and Promoting Common Prosperity Among All Ethnic Groups
Section 1: Improving the Employment Service System
Section 2: Optimizing Education and Sports
Section 3: Vigorously Prospering Cultural Undertakings
Section 4: Accelerating the Construction of a Healthy Nyingtri
Section 5: Promoting High-Quality Population Development
Section 6: Improving Social Security
Chapter 13: Accelerating Green Transformation and Building a Beautiful Nyingtri
Section 1: Improving the Ecological Civilization Mechanism
Section 2: Promoting Ecological Protection and Restoration
Section 3: Strengthening Environmental Pollution Control
Section 4: Promoting Green Development Transformation
Chapter 14: Upholding and Strengthening the Party’s Leadership to Ensure the Smooth Realization of the “15th Five-Year Plan” Goals
Section 1: Upholding the Party’s Overall Leadership
Section 2: Strengthening the Implementation of Planning Division of Labor
Section 3: Strengthening Policy and Project Support
Section 4 Improving the Supervision and Assessment Mechanism
The 15th Five-Year Plan period is a crucial period for laying a solid foundation and making comprehensive efforts to basically realize socialist modernization. It is also a significant opportunity for Nyingtri to seize the opportunities presented by major national strategic projects and leverage its advantageous resources to achieve high-quality development. The “Outline of the 15th Five-Year Plan for National Economic and Social Development of Nyingtri City (2026-2030),” compiled based on the “Suggestions of the Nyingtri Municipal Committee of the Communist Party of China on Formulating the 15th Five-Year Plan for National Economic and Social Development,” fully implements the decisions and deployments of the Party Central Committee, fully implements General Secretary Xi Jinping’s important instructions on Tibet work and the Party’s strategy for governing Tibet in the new era, and deeply implements the work deployments of the Autonomous Region Party Committee. It clarifies the strategic intentions of the Municipal Party Committee, reflects the wishes of all ethnic groups, and defines the key tasks of the government. It is a grand blueprint for vigorously promoting the construction of a new socialist modern Nyingtri and a common action program for all ethnic groups in the city.
Chapter 7 section 1 Improving the Quality and Efficiency of Traditional Characteristic Industries
建设全国重要生态文化旅游目的地。推动文化与旅游从简单叠加向深度融合的根本性转变，加强文化资源为旅游产业的价值赋能。到2030年，累计接待国内外游客达2200万人次以上，旅游总花费达200亿元以上。提升环南迦巴瓦峰生态观光、G318、G219廊道文旅基础设施和接待能力。依托优质的红色资源、生态资源、人文资源，系统开发精品旅游线路。推动“人间净地·醉美林芝”品牌知名度和影响力，擦亮“桃花”品牌。以全域为基、四季为脉、融合为要、服务为桥、共享为本，探索形成“全域覆盖、四季不淡、业态丰富、服务优质、民生共享”的均衡旅游新格局。探索形成以生态观光为基础、文化体验为特色、康养度假为引领、户外研学为补充的高质量产品矩阵，全面覆盖大众旅游与定制化需求，推动林芝从单一观光目的地向综合型深度旅游目的地转型升级。开发一批扶持乡村旅游、边境旅游的金融产品。妥善处理米林市、墨脱县等生态文化旅游开发与重大项目建设的关系，做好施工道路的科学分流和区域隔离防护。支持工布江达县、察隅县等县域生态文化旅游发展空间拓展。
做优高原特色农牧业。稳定青稞等粮食生产能力，推动高标准农田、良种繁育基地、青稞生产基地、农牧业防疫防灾减灾设施建设，提升粮食安全保障能力。打造特色农产品供储销基地，实施农牧业科技创新工程、现代种业提升工程、设施农牧业提升行动，大力发展林下经济，扩大特色种养规模。推动种植、养殖、加工、流通、仓储、品牌等环节一体化融合升级，完善农牧产品流通体系，优化农牧业生产体系，推进特色农牧产品“三品一标”工作，建设重大战略工程绿色有机保供基地。发展壮大藏猪、牦牛、奶牛等河谷畜牧养殖产业。适度扩大林麝、鹿业、冷水鱼等特色养殖规模。创新举措开展西藏土著鱼增殖放流。发展林菌、林果、茶叶等产业，打造区域特色品牌，加强农旅融合。加强与高校、科研院所、龙头企业合作，开展智慧农牧试点。加强农业数字化信息化建设，以科技赋能助力农牧特色产业发展。发展设施农牧业，建设蔬菜基地、牲畜育肥场等。推动精深加工集群化发展，建设绿色农牧产品加工示范基地，谋划建设“中央厨房”，打造藏东南高原特色农牧产品消纳中心。优化现代农牧经营体系，培育特色农牧业品牌。搭建县域农产品产销对接平台。加强农业数字化信息化建设。完善农牧业激励奖补措施。
Tr of above:
Build a nationally important ecological and cultural tourism destination. Promote a fundamental shift in the integration of culture and tourism from simple superposition to deep integration, and strengthen the value enhancement of cultural resources for the tourism industry. By 2030, the cumulative number of domestic and international tourists will reach over 22 million, with total tourism expenditure exceeding 20 billion yuan.
Improve the ecological sightseeing infrastructure and reception capacity of the Namcha Barwa Peak ecological corridor and the G318 highway and G219 corridors. Develop high-quality tourism routes systematically based on high-quality red, ecological, and cultural resources. Promote the brand awareness and influence of “Pure Land on Earth, Enchanting Nyingtri,” and enhance the “Peach Blossom” brand. Based on the entire region, following the four seasons, emphasizing integration, using services as a bridge, and prioritizing sharing, explore and form a balanced new tourism pattern characterized by “full coverage, year-round popularity, diverse business formats, high-quality services, and shared benefits for the people.”
Explore and form a high-quality product matrix based on ecological sightseeing, featuring cultural experiences, led by health and wellness vacations, and supplemented by outdoor study tours, comprehensively covering mass tourism and customized needs, and promoting Nyingtri’s transformation and upgrading from a single sightseeing destination to a comprehensive and in-depth tourism destination.
Develop a range of financial products to support rural and border tourism. Properly manage the relationship between ecological and cultural tourism development and major project construction in Milin City and Medog County, ensuring scientific diversion of construction roads and regional isolation and protection. Support the expansion of ecological and cultural tourism development space in Gongbo’gyamda County and Zayu County.
Optimize plateau-characteristic agriculture and animal husbandry. Stabilize the production capacity of grains such as highland barley, promote the construction of high-standard farmland, improved seed breeding bases, highland barley production bases, and agricultural and animal husbandry disease prevention, disaster prevention, and mitigation facilities, and enhance food security capabilities. Build characteristic agricultural product supply, storage, and sales bases, implement agricultural and animal husbandry science and technology innovation projects, modern seed industry upgrading projects, and facility agriculture and animal husbandry upgrading actions, vigorously develop under-forest economy, and expand the scale of characteristic planting and breeding. Promote the integrated upgrading of planting, breeding, processing, circulation, storage, and branding, improve the agricultural and animal husbandry product circulation system, optimize the agricultural and animal husbandry production system, promote the “three products and one standard” work for characteristic agricultural and animal husbandry products, and build green and organic supply bases for major strategic projects. Develop and strengthen the river valley livestock breeding industry, including Tibetan pigs, yaks, and dairy cows. Appropriately expand the scale of specialized aquaculture such as musk deer, deer, and cold-water fish. Innovative measures will be implemented to increase the stock of native Tibetan fish. Develop industries such as forestry and fungi, forestry and fruit, and tea, creating regional distinctive brands and strengthening the integration of agriculture and tourism.
Strengthen cooperation with universities, research institutes, and leading enterprises to conduct pilot projects for smart agriculture and animal husbandry. Strengthen the digital and information-based construction of agriculture, using technology to empower the development of specialized agricultural and animal husbandry industries. Develop facility-based agriculture and animal husbandry, constructing vegetable bases and livestock fattening farms. Promote the clustered development of deep processing, construct green agricultural and animal husbandry product processing demonstration bases, plan the construction of a “central kitchen,” and create a center for the consumption of specialized agricultural and animal husbandry products from the southeastern Tibetan plateau.
Optimize the modern agricultural and animal husbandry management system and cultivate distinctive agricultural and animal husbandry brands. Establish a county-level agricultural product production and sales docking platform. Strengthen the digital and information-based construction of agriculture. Improve incentive and subsidy measures for agriculture and animal husbandry.
因地制宜、分步分期培育清洁能源上下游产业链。扎实开展清洁能源产业招商，重点发展建材、装备组装、水电设备、安装调试、运行维护、机械维修等产业，引进水轮发电机组等研发制造头部企业，培育金结、设备等本地生产能力。发展风光等新能源配套产业，培育风光电线电缆、变压器等关键零部件配套产业。依托绿电优势，探索发展制氢制氧、绿色算力产业，探索推广氢能重卡。
建设绿色建材基地。聚焦重大工程、新型城镇化、乡村振兴、边境建设等需求，发展绿色低碳、集成集约的绿色建材产业，推动建材产业集聚化布局、集约化经营、绿色化生产。发展装配式建筑研发设计、部品部件生产、运输物流、工程机械、设备组装、特种材料、水泥制品及深加工、混凝土、砂石骨料加工、建筑垃圾再生骨料、检验检测、装备维修、装饰装修、节能环保等产业。引导建材企业绿色转型升级，实施建材行业能效标杆引领工程、超低排放示范工程，积极推进绿色建材产品认证，培育高水平绿色建材产业集群。拓展装配式建筑和绿色建材应用场景，引导新建改建城乡建筑采用绿色建材。发展金刚石超硬材料产业，培育金刚石“单晶、微粉、制品、钻石”产业链条，引进“专精特新”企业和培育龙头企业，开发工程建设、航空航天、医疗健康等领域专用产品。
建设优质天然饮用水基地。扩大天然饮用水产业规模，加强天然泉水等水源勘探与认证，开发高附加值产品。培育饮用水包装材料、生产装备等饮用水生产加工产业链。谋划建设天然饮用水仓储和物流配送中心，完善物流配送、销售网络等配套服务，提升品牌知名度。
发展高原特色轻工业。发展藏纸、藏香、石锅、藏刀、氆氇等特色民族手工业，挖掘民族文化内涵，强化手工技艺非物质文化遗产传承保护，推动传统手工技艺与现代时尚潮流相融合，支持手工业产品设计、制作工艺、品牌营销等创新。培育发展高原炊具产业，研发多功能、安全耐用产品，推动智能化、标准化生产制造，建立完善技术和质量标准体系。
谋划发展高载能高附加值产业。依托清洁能源优势，预留高载荷、高附加值、低污染的绿色冶炼、超算中心等发展条件，围绕服务自治区建设重要国家战略资源储备基地，建立产能、产地、产品储备相辅相成的战略资源储备开发体系，就地消纳绿色电力。
推动藏医药产业化规模化发展。实施藏医药振兴发展重大工程，统筹推动藏医药文化传承、资源保护、产业发展。启动藏药加工标准化体系建设，提升加工转化率。加强珍稀濒危野生药用动植物保护和替代品研发提升藏药材资源保护水平，筹建西藏中（藏）医药材种质基因库，布局建设藏药材种养基地，开展藏灵芝、藏天麻、藏贝母、石斛、黄精、桃儿七等规范化种植和加工，谋划建设藏东南藏药材交易基地。发展藏医药康养产业。
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Section 2. Actively Building a Green Industrial Base
Develop the upstream and downstream industrial chains of clean energy in a phased and phased manner, adapting to local conditions. Solidly promote investment in the clean energy industry, focusing on the development of building materials, equipment assembly, hydropower equipment, installation and commissioning, operation and maintenance, and machinery repair industries. Introduce leading R&D and manufacturing enterprises such as hydro-turbine generator sets, and cultivate local production capacity for metal structures and equipment. Develop supporting industries for new energy sources such as wind and solar power, and cultivate supporting industries for key components such as wind and solar power cables and transformers. Leveraging the advantages of green electricity, explore the development of hydrogen and oxygen production, green computing power industries, and explore the promotion of hydrogen-powered heavy trucks.
Construct a green building materials base. Focusing on the needs of major projects, new urbanization, rural revitalization, and border construction, develop a green, low-carbon, integrated, and intensive green building materials industry, promoting the clustered layout, intensive operation, and green production of the building materials industry. Develop industries such as prefabricated building R&D and design, component production, transportation and logistics, engineering machinery, equipment assembly, special materials, cement products and deep processing, concrete, sand and gravel aggregate processing, recycled construction waste aggregate, inspection and testing, equipment repair, decoration and renovation, and energy conservation and environmental protection. Guide building materials enterprises towards green transformation and upgrading, implement energy efficiency benchmarking projects and ultra-low emission demonstration projects in the building materials industry, actively promote green building materials product certification, and cultivate high-level green building materials industrial clusters. Expand the application scenarios of prefabricated buildings and green building materials, and guide the adoption of green building materials in newly built and renovated urban and rural buildings. Develop the diamond superhard materials industry, cultivate the diamond “single crystal, micro powder, products, diamond” industrial chain, introduce “specialized, refined, and innovative” enterprises and cultivate leading enterprises, and develop specialized products for engineering construction, aerospace, and medical health fields.
Construct high-quality natural drinking water bases. Expand the scale of the natural drinking water industry, strengthen the exploration and certification of natural springs and other water sources, and develop high value-added products. Cultivate the drinking water production and processing industrial chain, including drinking water packaging materials and production equipment. Plan and construct natural drinking water storage and logistics distribution centers, improve supporting services such as logistics distribution and sales networks, and enhance brand awareness.
Develop plateau-characteristic light industries. Develop distinctive ethnic handicrafts such as Tibetan paper, Tibetan incense, stone pots, Tibetan knives, and woolen fabrics; explore the cultural connotations of these crafts; strengthen the inheritance and protection of intangible cultural heritage; promote the integration of traditional handicrafts with modern fashion trends; and support innovation in product design, manufacturing processes, and brand marketing. Cultivate and develop the plateau cooking utensil industry, research and develop multifunctional, safe, and durable products, promote intelligent and standardized production, and establish a comprehensive technical and quality standard system.
Plan for the development of high-energy-consuming and high-value-added industries. Leveraging the advantages of clean energy, reserve development conditions for high-load, high-value-added, and low-pollution green smelting and supercomputing centers. Focusing on serving the autonomous region’s construction as an important national strategic resource reserve base, establish a strategic resource reserve development system that integrates production capacity, production location, and product reserves, and locally utilize green electricity.
Promote the industrialization and large-scale development of Tibetan medicine. Implement major projects for the revitalization and development of Tibetan medicine, and coordinate the inheritance of Tibetan medicine culture, resource protection, and industrial development. Initiate the construction of a standardized system for Tibetan medicine processing to improve processing conversion rates. Strengthen the protection of rare and endangered wild medicinal plants and animals and the research and development of alternatives to improve the protection level of Tibetan medicinal resources; establish a germplasm bank for Tibetan medicinal materials in Tibet; plan and construct Tibetan medicinal material planting and breeding bases; carry out standardized planting and processing of Tibetan Ganoderma lucidum, Tibetan Gastrodia elata, Tibetan Fritillaria cirrhosa, Dendrobium nobile, Polygonatum sibiricum, and Prunus armeniaca; and plan to build a Tibetan medicinal material trading base in southeastern Tibet. Develop the Tibetan medicine and health care industry.
前瞻布局数字经济。大力推进数字林芝建设，积极培育数据要素市场，推进人工智能赋能各行各业，促进实体经济和数字经济深度融合。立足林芝未来绿电优势，积极对接自治区“算力珠峰”高质量发展行动方案，融入区域一体化算力网。优化算力基础设施布局，探索发展数据清洗运算、数据分析、数据存储等“东数西算”大数据产业，就地消纳清洁电力。探索与广东省合作发展算力飞地。加快新一代信息技术全方位全链条普及应用，发展工业互联网，加快企业数字化转型，推动数字化智能化技术广泛应用，推动信息技术与制造业融合，推进区块链、智能制造等领域技术创新和示范应用，围绕业务上云、企业上云、工业APP等环节，构建工业互联网服务平台。
发展低空经济。建设高原山区航空器和无人机测试基地，提升飞行保障能力，完善起降点和通讯设施，构建适应高原条件的生产、训练、测试平台，开展无人驾驶航空器试验，保障边境地区战备物资、防灾减灾物资运输。争取低空空域目视通道规划和管理改革试点，拓展低空应用场景，鼓励“通用航空+”“低空+”“无人机+”等多场景应用，探索发展应急救援、防灾减灾、电力巡检、护林巡查、环境监测、地图测绘等公益性应用场景，谋划发展低空物流、低空旅游等商业模式。扩大服务范围、提高服务水平，推动通用航空、无人机进景区、施工区、农牧区。强化低空经济气象服务保障。
推动生产性服务业融合化发展。推动生产性服务业嵌入工程建设运营全链条，围绕工程人员“衣食住行、文教医养”需求，构建数字服务、绿色服务等新业态。建设清洁能源总部经济集聚区。布局工程机械和清洁能源相关产业研发、组装、维修、保养、回收等服务业。培育研发设计、科技服务、仓储物流、工程勘察、环境评估、战略规划、会议会展、信息服务、商务服务、营销策划、法律服务、检验检测、知识产权、环保服务等专业化社会化服务业，加强生产性服务业与特色优势产业深度融合。培育发展现代金融业，围绕重大项目建设资金需求，培育项目融资、绿色信贷、机械租赁、工程保险、基础设施REITs、供应链金融等特色金融服务，鼓励和推动创新型保险产品在林芝先行先试，提升保险服务效率。支持政策性银行、公募基金、绿色基金、证券、保险、期货等金融机构在林芝设立分支机构。发展研发设计服务业，培育市场化新型研发组织、研发中介和研发服务外包新业态。推进服务业数智化发展，健全服务业统计监测体系。推动形成“产业+服务”新型产业生态，推进服务业数智化。强化科技创新和产业创新对接，提升基础软件、工业软件等关键软件供给能力。
提升生活性服务业品质。以提高生活品质和服务体验为导向，推动生活性服务业品质化、多样化、便利化升级，加快发展商务住宿、购物零售、康复理疗、专业培训、人文艺术、休闲康体等服务业，加强公益性、基础性服务业供给，满足群众多样化生活服务需求。加快完善托幼、家政等服务标准。加强适老化设施升级改造，提供生活用品代购、家政预约、代收代缴、精神慰藉等服务，更好满足老年人的生活需求。优化生活性服务业网点布局，完善城市生活性服务设施，加大农村生活性服务网点建设力度，促进生活性服务业扩容提质升级。推动生活性服务业数字化赋能，提升居民生活便利度。健全加快生活性服务业多样化发展机制，推动生活性服务业诚信化职业化发展。
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Section 3. Laying Out Emerging and Future Industries
Proactively plan for the digital economy. Vigorously promote the construction of Digital Nyingtri, actively cultivate the data element market, promote the empowerment of various industries by artificial intelligence, and promote the deep integration of the real economy and the digital economy.
Based on Nyingtri’s future green electricity advantages, actively align with the autonomous region’s “Computing Power Everest” high-quality development action plan and integrate into the regional integrated computing power network. Optimize the layout of computing power infrastructure, explore the development of the “East Data, West Computing” big data industry (data cleaning, data analysis, data storage, etc.), and consume clean electricity locally.
Explore cooperation with Guangdong Province to develop computing power enclaves. Accelerate the comprehensive and full-chain popularization and application of new-generation information technology, develop the industrial internet, accelerate the digital transformation of enterprises, promote the widespread application of digital and intelligent technologies, promote the integration of information technology and manufacturing, promote technological innovation and demonstration applications in fields such as blockchain and intelligent manufacturing, and build an industrial internet service platform around business cloudification, enterprise cloudification, and industrial APPs.
Develop the low-altitude economy. Construct a testing base for aircraft and drones in high-altitude mountainous areas to enhance flight support capabilities, improve take-off and landing points and communication facilities, build a production, training, and testing platform adapted to high-altitude conditions, conduct unmanned aerial vehicle (UAV) tests, and ensure the transportation of war preparedness materials and disaster prevention and mitigation materials to border areas. Strive for pilot projects for the planning and management reform of low-altitude airspace visual corridors, expand low-altitude application scenarios, encourage multi-scenario applications such as “general aviation+”, “low-altitude+”, and “UAV+”, explore the development of public welfare application scenarios such as emergency rescue, disaster prevention and mitigation, power line inspection, forest patrol, environmental monitoring, and map surveying, and plan the development of business models such as low-altitude logistics and low-altitude tourism. Expand the service scope and improve service levels, promoting general aviation and UAVs in scenic areas, construction areas, and agricultural and pastoral areas. Strengthen low-altitude economic meteorological service support.
Section Four: Enhancing the Quality of Modern Service Industries
Promoting the integrated development of productive service industries. Promote the embedding of productive service industries into the entire chain of engineering construction and operation, focusing on the “clothing, food, housing, transportation, culture, education, medical care, and elderly care” needs of engineering personnel, and construct new business models such as digital services and green services.
Construct a clean energy headquarters economy cluster area. The plan outlines the development of service industries related to engineering machinery and clean energy, including R&D, assembly, repair, maintenance, and recycling. It also fosters specialized and socialized service industries such as R&D design, technology services, warehousing and logistics, engineering surveying, environmental assessment, strategic planning, conferences and exhibitions, information services, business services, marketing planning, legal services, inspection and testing, intellectual property, and environmental protection services, strengthening the deep integration of productive service industries with distinctive and advantageous industries. Furthermore, it promotes the development of modern finance, focusing on the funding needs of major projects, developing specialized financial services such as project financing, green credit, machinery leasing, engineering insurance, infrastructure REITs, and supply chain finance. It encourages and promotes the pilot implementation of innovative insurance products in Nyingtri to improve insurance service efficiency. Support is provided for policy banks, public funds, green funds, securities, insurance, and futures financial institutions to establish branches in Nyingtri. The plan also develops the R&D design service industry, fostering new market-oriented R&D organizations, R&D intermediaries, and new R&D service outsourcing models. It promotes the digitalization of the service industry and improves the service industry statistical monitoring system. It aims to promote the formation of a new “industry + service” industrial ecosystem and advance the digitalization of the service industry. Finally, it strengthens the connection between technological innovation and industrial innovation, enhancing the supply capacity of key software such as basic software and industrial software.
Enhance the quality of life services. Guided by improving quality of life and service experience, promote the upgrading of life services towards higher quality, greater diversification, and greater convenience. Accelerate the development of services such as business accommodation, retail, rehabilitation and physiotherapy, professional training, humanities and arts, and leisure and fitness. Strengthen the supply of public and basic services to meet the diverse needs of the public. Accelerate the improvement of service standards for childcare and domestic services. Strengthen the upgrading and renovation of facilities for the elderly, providing services such as grocery shopping, domestic service appointments, bill payment, and emotional support to better meet the needs of the elderly. Optimize the layout of life service outlets, improve urban life service facilities, and increase the construction of rural life service outlets to promote the expansion and upgrading of life services. Promote the digital empowerment of life services to improve the convenience of residents’ lives. Improve the mechanism for accelerating the diversified development of life services and promote the integrity and professionalization of life services.
加强市域产业协同，建设经济发展新引擎、产业集群新载体。探索市级统筹、事权独立的“一区多园”管理模式，发挥主园区带动作用，突出分园区比较优势，健全协同互动发展机制，探索构建税收分成、利益共享机制，推动分园区在产业布局优化、资源高效配置、功能互补协同方面的系统集成，形成差异化定位、联动化推进的产业发展格局，构建分工协作、资源共享、统筹管理的发展体系。推动集聚发展，引导人才、技术、资金等要素向园区集聚，催生新产业、新业态、新模式，完善“研发—转化—应用”创新链条，全面提升产业体系内生增长动能、可持续发展能力。
主园区建设科技产业创新基地、藏东南现代商贸物流枢纽、产城生态融合示范区、农牧特色产业精深加工区、“一区多园”核心引领区，聚焦保障服务重大项目建设，引进清洁能源链主企业和关联企业，建设清洁能源总部、装备制造和配套产业基地，壮大高新技术企业规模。巴宜分园区建设绿色工业基地，推进绿色建材产业发展，为重大项目、城镇建设提供保障。米林分园区建设综合能源工程基地、清洁能源应用示范区，发展大型机械设备组装、维修、配件制造、水力发电工程施工等产业，发展以工程建设运营为主的水力发电技术服务、仓储物流等产业。派镇分园区建设水电机械装配服务基地，发展机电设备安装及维修、砂石加工、金属结构拼装、压力钢管加工、水力发电工程施工、通用仓储等产业。墨脱分园区建设水电综合生产加工基地，推进墨脱产业园区提质扩容，布局混凝土生产、综合加工、机电设备安装及维修、物流仓储、农牧科技等产业。朗县分园区建设综合建材产业基地，布局绿色建材产业、民爆行业地面站，发展高原绿色建材产业集群，发展高原钻石、水能、光能、水泥、苹果等产业集群及辣椒、核桃精深加工。波密分园区建设现代农业与清洁能源融合园区，建设藏东南综合交通物流基地、林下资源精深加工基地，发展数字农机装备应用、分布式光伏并网应用。工布江达县分园区建设清洁能源产业园、农业产业园区建设，发展绿色建材产业，壮大藏猪生态养殖、精深加工。察隅县分园区建设清洁能源园区、特色农牧园区。
提升园区设施建设水平。提高园区产出强度，提升投资效益，调整优化“小散”地块，按程序清退不达标企业，根据落地投产企业固定资产投资额、解决就业、经济贡献、技术创新等情况给予奖励。加强园区规模化、集约化开发，实现运营共享、服务共享、资源共享。完善园区道路、管网、电力、通信等基础设施。实施园区企业设备更新行动、标准提升行动，推动工业企业数字化改造。开展林芝、拉萨经开区合作共建。推动经开区扩区。
| 专栏5：产业高质量发展工程 |
| 01 文化旅游业
实施工布江达县巴松错景区、米林市南伊沟景区、波密县松宗镇、丹娘佛掌沙丘等景区旅游基础设施建设提升，喜马拉雅南北麓等精品景观带，开展桃花城建设、创建巴宜区嘎拉桃花村5A级景区、嘎拉村“工布桃源”文旅融合、工布江达县巴松错国家5A级旅游景区设备更新和提升改造、巴松错景区游客中心外移、朗县嘎贡沟景区开发利用、朗县千年核桃园塔布文化展示中心、米林市藏医药文化体验馆、墨脱县天梯（海市蜃楼）观景台、G318、G219沿线文旅驿站等建设。 |
| 02 高原特色农牧业
打造特色农产品供储销基地，实施农牧业科技创新工程、现代种业提升工程、设施农牧业提升行动，建设重大战略工程绿色有机保供基地。实施高标准农田建设、青稞生产基地、农牧业防疫防灾减灾设施、冷水鱼保种繁育、畜禽规模养殖场粪污资源化利用、基层动物防疫体系建设、蔬菜（特色作物）设施、重大项目绿色有机保供基地、农牧业工业化专项行动、生产监测预警升级、农牧业绿色生产等项目。 |
| 03 绿色工业
实施清洁能源上下游产业培育行动，谋划引进水轮机、发电机等能源装备、设备组装制造和高海拔运维服务等清洁能源核心产业项目，实施建筑材料、功能性材料、中大型工程机械和工程设计等保障支撑产业项目，探索引进制氢制氧、数字算力、绿色冶炼等绿电消纳产业项目。建设绿色建材基地、藏东南藏药材交易基地、西藏中（藏）医药材种质基因库，实施建材行业能效标杆引领工程、超低排放示范工程、西藏新一轮找矿突破战略行动、重点产业园区基础设施、园区企业设备更新行动、标准提升行动、工业企业数字化改造。 |
| 04 未来产业
探索建设低空经济、高原山区航空器和无人机测试基地、起降点和通讯设施、算力基础设施。 |
| 05 现代服务
推动生产性服务业升级，谋划推进清洁能源总部经济、金融服务、工程建设、信息技术、智能建造、质量监督、环保服务、信息科技、计量检验、大宗物流、科技研发、人力资源、劳务培训、电子商务、基础技术等项目。 推动生活性服务业提质，谋划建设商业综合体、酒店餐饮、商贸服务、康养疗愈、零售商贸、连锁超市、通信服务、平台服务、物业家政、养老托育、商超零售等项目。 |
第八章 服务融入新发展格局，完善现代化市场体系
优化供给结构、创新消费场景，充分释放内需潜力，聚焦关键领域与薄弱环节，引导资金投向更具效能的领域，优化投资结构，塑造市场化、法治化、国际化一流营商环境，为构建新发展格局提供坚实支撑。
积极促进消费。建立健全促进消费工作长效机制，合理增加公共消费，增加政府资金用于民生保障支出。积极培育消费新场景，推动消费换新升级，提升消费能力，培育消费新增长点，刺激消费市场，提升传统消费，培育新型消费，扩大服务消费，发展节会经济、文旅经济、赛事经济、夜间经济、数字经济、共享经济、首发经济、票根经济、文创经济，探索发展冰雪经济。支持物资保障企业落户。依托重大项目建设、发展优势产业、健全利益联结，完善劳动者工资正常增长机制，增加中低群体收入，培育消费主体。打造一刻钟便民生活圈，布局商业综合体、电子商务平台，支持知名品牌企业、老字号、连锁企业在林芝开设品牌首店、直营门店。逐步扩大农特产品交易载体规模。持续优化消费环境，维护消费者权益。推动成品油、家电、汽车大宗消费增长。“十五五”时期力争社会消费品零售总额年均增长达到7%。
做强商贸物流。建设现代物流体系，提升服务保障重大项目、重点产业物流能力，加快区域物流枢纽网络基础设施建设，积极构建物流枢纽网。优化现代商贸设施，建设林芝现代综合物流园，配套集中采购设施，建设跨区域配送冷链物流集散中心，完善运营机制。建设公共冷库，发展“生鲜电商+冷链宅配”等新模式。引导大型商贸流通企业、大型电商企业资源下沉，建设本地仓，探索在内地重点物流节点城市设置前置仓，降低物流成本。健全县域商贸流通网络，构建县乡村三级配送网络体系，改造县城商贸服务中心、乡镇商贸中心、村级传统网点，建设农牧区寄递物流体系，完善农牧区邮政快递服务体系，搭载快递收发、农牧产品上行等服务，打通“藏货出山”通道。推进巴宜区“两圈一连锁”。
完善政府投资全过程管理制度。深化投资审批制度改革，优化政府投资方向和重点，建立政府投资支持基础性、公益性、长远性重大项目建设长效机制，开展股权投资、创业投资、科技投资，健全政府投资有效带动社会资本投资机制，进一步提高政府投资效益。坚持投资于物与投资于人相结合，结合未来人口增量、结构变化、流动趋势，加强人力资源开发和人的全面投资。完善重大项目领导包保、联审联批、绿色保障通道等机制，规范项目招投标管理，开展“远程异地评标”。探索“资源开发—利益共享”机制，探索以资源或土地入股分享开发收益，实现从“经济补偿”向“发展权补偿”转变。
优化支持民营经济制度。坚持和落实“两个毫不动摇”，依法保障各类所有制企业平等使用资源要素、公平参与竞争、受法律同等保护。制定非公有制企业进入特许经营领域具体办法，除国家法律法规明令限制的行业外，一律允许民间资本进入，与国有资本享有同等待遇。规范实施政府和社会资本合作新机制，支持优质民营企业在林参与工程建设、重点产业发展，探索市政设施建设特许经营模式，推进基础设施竞争性领域向经营主体开放，激发民间投资活力和鲶鱼效应。探索建立民营经济监测机制，加大减税降费和融资支持力度。健全民企与高校、科研院所合作机制，推动创新发展。完善涉企收费清单，建立拖欠账款清理与审计巡视对接机制，设立法律服务窗口和产权保护“绿色通道”，加强知识产权全链条保护，切实减轻企业负担。支持民营企业参与重大项目物流保供和参工参建。
全面融入全国统一大市场。健全积极融入全国统一大市场制度机制，贯彻“五统一、一开放”要求，破除地方保护和区域壁垒。打造市场化、法治化营商环境，建立健全公平竞争审查抽查、考核、公示、第三方评估制度，落实市场准入负面清单和公平竞争审查制度，清理妨碍全国统一市场和公平竞争的各种规定做法，落实“非禁即入”。全面清理行政垄断，公开涉企优惠政策清单。提高政府监管效能，健全跨部门综合监管机制，推进“双随机、一公开”监管、“互联网+监管”作用，优化协同监管机制和方式。建设营商环境监测平台，创新亲商安商稳商服务措施，构建亲清政商关系。高标准联通市场设施，降低全社会物流成本。依法依规治理企业低价无序竞争、恶意拖欠等行为。
加快数字政府建设。完善数字政府服务体系，深化“互联网+政务服务”，构建政务服务“大综窗”新机制，健全“高效办成一件事”重点事项清单管理机制，实现惠企政策精准送达。加快政务服务数字化转型，依托自治区一体化政务服务平台，实现全流程“一网通办”“一网统管”，形成智治特色应用场景，提升政务服务事项一次办结率，打通信息孤岛，推进政务外网按需升级扩容和终端安全防护改造。全面提升行政审批和公共服务效率，推进并联审批、联合审批以及多规合一、多评合一、多图联审，加强各系统（平台）互联互通，深化“一次告知、一表申请、一套材料、一窗（端）受理、一网办理”。加快公共数据集成和共享交换，建设低成本、广覆盖、高质量、更可及的数字服务体系，提升数字化社会服务均等化、普惠化、便捷化水平。打造不动产交易登记平台。
培育公平公正法治环境。扎实推进法治、诚信政府建设，规范行政执法行为，严肃处理乱收费、乱罚款、乱检查、乱查封问题，营造客商放心投资、企业安心经营、项目顺心推进发展环境，制订营商环境正负面清单，优化营商环境问题投诉处理机制、政企沟通机制，落实企业联席会议制度，健全市级负责同志联系企业制度，全周期解决企业落地、投产、经营困难。推动营商环境全市“一盘棋”。
深入建设“信用林芝”。完善政府守信践诺机制，建设林芝市公共信用信息平台系统，提升“信用中国（西藏林芝）”门户网站运营水平。打造信用分级分类监管系统，探索自然人信用信息归集，建立中小企业增信制度、失信修复机制，推动信用报告代替无违法违规记录证明。
推进产业链精准招商。聚焦清洁能源、特色农牧、文化旅游、现代服务等重点产业，围绕薄弱环节和新兴领域谋划优质项目。绘制资源、产业链、基金招商图谱，编制投资机会清单和企业名录，为靶向招商提供指引。创新采取展会、援藏、园区、科技、数字招商等方式，提升招商精准度和成功率。推行重点产业“链长制”，按照“一个产业、一个领导、一个班子”的模式，培育对产业链有较强集成能力与带动作用的链主企业，开展延链补链，围绕要素保障、市场需求、政策帮扶等方面精准发力，推动重点产业集群化发展。强化全市“一盘棋”顶层设计，规范优惠政策，推进投资促进、招商引资法治化、规范化。健全土地供应、产业配套、企业服务、激励问责督查督办、成果评价机制。深化“双招双引”政策，围绕培育清洁能源、数字经济、绿色工业等引进产业项目与紧缺高端人才，优化人才聚集生态，以精准招商和机制优化双轮驱动，带动全产业链提升与经济社会高质量发展。引进一批科技含量高、投资强度高、产出效益高、产业关联度高、具有自主知识产权的项目。
| 专栏6：现代化市场体系建设工程 |
| 01 扩大消费
实施提振消费行动，举办特色节庆赛事活动，升级特色商业文创街区，建设一刻钟便民生活圈、商业综合体、电子商务平台，打造夜间经济、冰雪经济载体。建设市场监管能力基础设施、市场监管快检中心。 |
| 02 物流仓储
建设现代综合物流园区，完善重型设备中转设施，建设综合物流仓储枢纽。实施县城商贸服务中心、农贸市场、乡镇商贸中心、村级传统网点改造升级，建设邮政普遍服务基础设施，健全县、乡、村三级寄递物流基础建设，构建畅通物流体系。 |
| 03 营商环境
实施数字政府、政务服务标准化、公共信用信息平台、不动产交易登记平台建设。制订资源招商、产业链招商、基金招商图谱，编制投资机会清单、企业名录。 |
Chapter Nine: Strengthening Support for High-Quality Development and Consolidating the Infrastructure System
Original of above
第九章 强化高质量发展支撑，夯实基础设施体系
以重大战略工程建设为牵引，构建系统完备、高效实用、智能绿色、安全可靠的现代化基础设施体系，为高原现代化建设提供坚强支撑。
完善市域对内对外交通网络，加快构建以铁路、高等级公路、机场为骨干，国省干道为主体，乡村道路为补充的综合立体交通网络。
推动川藏铁路等铁路网建设。推进川藏铁路林芝段建设，新建铁路波密至然乌支线，推动拉林铁路扩能改造，推动然乌至香格里拉铁路前期论证，米林、中沙坝铁路转运站，规划研究厂区、园区铁路专用线。
实施市域公路提升改造。服务保障G4218（雅安到林芝段）高速公路建设，开展林芝米林机场至朗县段高速公路前期论证，实现与邻市2条以上快速通道连接。实施雅下水电工程施工保障道路畅通工程，推进岗派公路鲁霞大桥—派镇、X408鲁霞大桥—八一镇和麦朗沟—派镇临时桥—吞白村、德兴大桥—那尔东—易贡白、背崩乡新巴登—老巴登。推动国省干道改扩建，加快贯通G219察墨、米墨段，构建G318至G219连接线，升级改造G318、G560等公路，实施G559波墨公路段提升改造和灾害整治，推动G219、G318“除盲”工程。加密县际交通路网，推动S203、S205、S303、S504、S505、X412等公路改扩建。建好“四好农村路”，力争实现具备条件的行政村通畅率100%。建设巴宜区觉木大桥和尼洋河大桥、墨脱雅鲁藏布江特大桥等桥梁。
优化机场体系建设。实施林芝米林机场改扩建工程，加快建设墨脱支线机场、波密通用机场，开展察隅、朗县通用机场研究论证，布局直升机起降点，构建以通用机场和直升机起降点为支撑的“一干多支、多点蛙跳”机场布局。
围绕强化数字化转型、智能升级、融合创新，充分发挥清洁能源、地理气候等优势，建设新型信息基础设施。
优化数字基础设施。以赋能经济高质量发展、提升社会运转效率为目标，推进5G规模化应用“扬帆”行动，推动新一轮5G+通信基础设施建设，建设光纤超宽带、物联网、云计算等数字设施，夯实“智慧林芝”数字底座，构建高速泛在、天地一体、集成互联、安全高效的信息设施体系，提升数字服务经济社会发展能力。深入实施“信号升格”“感知升格”专项行动，深化电信普遍服务和“宽带边疆”建设。深入推进IPv6规模应用，开展千兆网络建设，实现从“三千兆”向“三万兆”提升。推广使用卫星通信。对接自治区建设面向南亚数字港建设，完善区域国际通信枢纽布局。推动偏远农牧区、边境一线等地区网络通达，实现5G网络乡村全覆盖。推进传统基础设施数智化改造。
实施城市全域数字化转型。完善林芝大数据中心建设，集成指挥调度、政务信息功能，加大信用数据归集力度，集成城市运行、公共服务、应急管理等功能，推进部门间数据共享。推进“互联网+政务”、一体化大数据体系、数字化灾备体系建设。建设城市信息模型（CIM）基础平台，实施市政公用设施、建筑物、施工工地等物联网应用和智能化改造。逐步建设县级城运中心。实施北斗综合应用示范项目。配合自治区实施区域一体化数据基础能力提升工程。
完善水利设施体系。优化林芝水网，推进骨干水网建设，构建“系统完备、功能协同、集约高效、绿色智能、调控有序、安全可靠”的水安全保障能力体系，提升水资源集约安全利用水平。完善城乡供水设施，改善供水结构。保障边境一线、偏远地区、农牧区饮水安全。加大农田灌溉水利设施投入，加强现有灌区续建配套和现代化改造，有序新建中型灌区，提高农田灌溉水有效利用水平。推进农村供水“3+1”模式，提升供水工程服务农村人口比例。围绕边境县城、乡镇、搬迁点用水需求，完善供水设施建设。提升水资源优化配置能力，推进节水型社会建设，全市用水总量、用水强度指标控制在自治区核定范围以内。
加强流域防洪减灾。按照“整体规划、系统治理、分段实施”的原则，统筹上下游、干支流、左右岸防洪关系，以流域为单元，科学推进江河治理。加强中小河流综合治理，推进拉木曲、金东曲等流域中小河流防洪治理，强化堤防建设和河道行洪空间管控，构建与城镇经济社会发展相适应的防洪体系，提升城市防洪安全保障能力。推进山洪灾害防治，完善非工程措施与工程措施相结合的山洪灾害综合防御体系。推进流域水资源、水生态、山洪灾害、气象等智能监测站网建设，完善雨水情监测预报体系，建立多部门协同的流域山洪灾害防治预警系统，提升流域治理智能化水平。加快病险水库除险加固，实施高原河湖灾害风险整治。
加强流域整治修复。坚持系统治理，科学划定河湖水域岸线管控边界，严格规范岸线开发利用行为、严厉整治河湖非法采砂乱象，压实常态化巡查监管职责。深入推进水土保持生态建设、扎实开展小流域综合治理、坡耕地水土流失综合治理，夯实流域生态基底，稳步提升区域水土保持能力与河湖生态承载水平。
Driven by major strategic projects, we will construct a comprehensive, efficient, practical, intelligent, green, safe, and reliable modern infrastructure system to provide strong support for the modernization of the plateau region.
Section 1: Strengthening the Comprehensive Transportation System
We will improve the city’s internal and external transportation network, and accelerate the construction of a comprehensive, three-dimensional transportation network with railways, high-grade highways, and airports as the backbone, national and provincial trunk roads as the main body, and rural roads as a supplement.
We will promote the construction of railway networks such as the Sichuan-Tibet Railway. We will advance the construction of the Nyingtri section of the Sichuan-Tibet Railway, construct a new branch line from Bomi to Ranwu, promote the capacity expansion and upgrading of the Lhasa-Nyingchi Railway, advance the preliminary feasibility study for the Ranwu-Shangri-La Railway, and construct railway transfer stations at Milin and Zhongshaba. We will also plan and study dedicated railway lines for factory areas and industrial parks.
We will implement the upgrading and renovation of city-wide highways. We will provide service and support for the construction of the G4218 (Ya’an to Nyingtri section) expressway, conduct preliminary feasibility studies for the Nyingtri Milin Airport to Langxian section expressway, and achieve connections with neighboring cities via at least two rapid transit routes. Implement road accessibility measures for the Yaxia Hydropower Project, including advancing the construction of the Gangpai Highway (Luxia Bridge to Pai Town), the X408 Luxia Bridge to Bayi Town, the Mailanggou-Pai Town temporary bridge to Tunbai Village, the Dexing Bridge-Naerdong-Yigongbai, and the Beibeng Township Xinbaden-Laobadeng. Promote the reconstruction and expansion of national and provincial highways, accelerate the connection of the G219 Chamo and Mimo sections, construct the G318-G219 connecting line, upgrade and renovate highways such as G318 and G560, implement the upgrading and disaster mitigation of the G559 Bomo Highway section, and promote the “blind spot removal” project on G219 and G318. Densify the inter-county road network, and promote the reconstruction and expansion of highways such as S203, S205, S303, S504, S505, and X412. Build high-quality rural roads, striving to achieve 100% road accessibility for eligible administrative villages. Construct bridges such as the Juemu Bridge and Niyang River Bridge in Bayi District, and the Yarlung Tsangpo River Grand Bridge in Medog.
Optimize the airport system. Implement the expansion and renovation project of Nyingchi Mainling Airport, accelerate the construction of Medog branch airport and Bomi general aviation airport, conduct research and demonstration on general aviation airports in Chayu and Langxian, and plan helicopter landing points to build a “one trunk, multiple branches, and multiple leapfrog” airport layout supported by general aviation airports and helicopter landing points.
Section 2: Construction of New Infrastructure
Focusing on strengthening digital transformation, intelligent upgrading, and integrated innovation, fully leverage the advantages of clean energy, geographical climate, and other factors to construct new information infrastructure.
Optimize digital infrastructure. With the goal of empowering high-quality economic development and improving social operational efficiency, promote the “Sailing” action for the large-scale application of 5G, drive a new round of 5G+ communication infrastructure construction, build digital facilities such as fiber optic ultra-broadband, the Internet of Things, and cloud computing, solidify the digital foundation of “Smart Nyingchi,” and build a high-speed, ubiquitous, integrated, interconnected, safe, and efficient information infrastructure system to enhance the ability of digital services to support economic and social development. We will further implement the “Signal Upgrade” and “Perception Upgrade” special campaigns, and deepen universal telecommunications services and the construction of “Broadband Frontiers.” We will further promote the large-scale application of IPv6, carry out gigabit network construction, and upgrade from “three gigabit” to “thirty-ten-gigabit.” We will promote the use of satellite communications. We will align with the autonomous region’s construction of a digital port facing South Asia and improve the regional international communications hub layout. We will promote network accessibility in remote rural and pastoral areas and border regions, achieving full 5G network coverage in rural areas. We will promote the digital transformation of traditional infrastructure.
We will implement a city-wide digital transformation. We will improve the construction of the Nyingtri Big Data Center, integrating command and dispatch, government information functions, increasing the collection of credit data, integrating urban operation, public services, and emergency management functions, and promoting data sharing among departments. We will promote the construction of “Internet + Government Affairs,” an integrated big data system, and a digital disaster recovery system. We will build a city information model (CIM) basic platform and implement IoT applications and intelligent transformation of municipal public facilities, buildings, and construction sites. We will gradually build county-level urban operation centers. We will implement the BeiDou integrated application demonstration project. We will cooperate with the autonomous region in implementing the regional integrated data infrastructure capacity improvement project.
Section 3. Improving Water Conservancy Facilities
Improve the water conservancy facility system. Optimize the Nyingtri water network, promote the construction of the backbone water network, and build a water security guarantee system that is “systematic, functionally coordinated, intensive and efficient, green and intelligent, orderly regulated, and safe and reliable,” thereby improving the level of intensive and safe utilization of water resources. Improve urban and rural water supply facilities and optimize the water supply structure. Ensure drinking water safety in border areas, remote areas, and agricultural and pastoral areas. Increase investment in farmland irrigation facilities, strengthen the continued construction and modernization of existing irrigation areas, and orderly construct new medium-sized irrigation areas to improve the effective utilization level of farmland irrigation water. Promote the “3+1” model of rural water supply and increase the proportion of rural population served by water supply projects. Improve water supply facility construction based on the water needs of border counties, townships, and relocation sites. Enhance the ability to optimize water resource allocation, promote the construction of a water-saving society, and control the total water consumption and water intensity indicators of the city within the range approved by the autonomous region.
Strengthen flood control and disaster reduction in the basin. Following the principles of “overall planning, systematic governance, and phased implementation,” we will coordinate flood control relationships between upstream and downstream areas, main streams and tributaries, and left and right banks, and scientifically advance river management on a basin-by-basin basis. We will strengthen the comprehensive management of small and medium-sized rivers, promote flood control management of small and medium-sized rivers in basins such as the Lamuqu and Jindongqu, strengthen dike construction and river channel flood discharge space control, build a flood control system adapted to urban economic and social development, and enhance urban flood safety capabilities. We will promote the prevention and control of mountain torrent disasters, and improve the comprehensive mountain torrent disaster defense system combining non-engineering and engineering measures. We will promote the construction of intelligent monitoring network for water resources, water ecology, mountain torrent disasters, and meteorology in the basin, improve the rainfall and water level monitoring and forecasting system, establish a multi-departmental collaborative basin mountain torrent disaster prevention and early warning system, and enhance the intelligent level of basin management. We will accelerate the reinforcement and repair of dilapidated reservoirs and implement disaster risk management for plateau rivers and lakes.
We will strengthen basin management and restoration. Adhering to systematic governance, we will scientifically delineate the control boundaries of river and lake water areas and shorelines, strictly regulate shoreline development and utilization, severely crack down on illegal sand mining in rivers and lakes, and strengthen routine inspection and supervision responsibilities. We will further promote soil and water conservation and ecological construction, carry out comprehensive management of small watersheds and comprehensive management of soil erosion on sloping farmland, consolidate the ecological foundation of watersheds, and steadily improve the regional soil and water conservation capacity and the ecological carrying capacity of rivers and lakes.
第十章 优化空间结构，塑造“一核三带五组团”格局
推动市域优势互补、差异化发展，提升巴宜米林核心带动能力，构建雅江经济发展带、铁路沿线发展带、兴边富民发展带，培育墨脱县、工布江达县、波密县、朗县、察隅县5个县域经济发展引擎。
推进巴宜米林协同发展。将巴宜米林协同发展区打造成为市域发展核心，推动规划建设管理一体化，优化巴宜城区、米林市区、林芝经开区、派镇片区功能布局，推进城区提质扩容。依托G219、G318、林拉公路等重要交通廊道，构建巴米协同“人”字型发展格局。加强产业分工协作、基础设施连通、公共服务共享、社会治理联动方面的协同发展，提升城市服务品质，协同建设清洁能源总部基地、文旅消费集聚区、现代服务业高地。引进清洁能源产业领军企业，发展装备制造、建筑建材、超算数据、智能电网、制氢制氧、科研咨询、勘察设计、技术培训等清洁能源相关产业，发展高原生物、绿色工业、中药藏药、现代服务、物流商贸等配套产业，发挥对林芝经济社会发展的重要支撑引领作用。巴宜区发挥中心城区优势和产业集聚效应，做优做强林芝市增长核心、西部绿色产业承载地、自治区科创人才和现代服务业集聚地，打造雅江经济带核心城市、宜居宜业幸福桃花城、民族特色现代化城市，规划建设火车站片区，实现人口、经济、要素高水平集聚。米林市发挥“一江两路、一场两站”人流物流集聚效应，建设全国重要生态文旅目的地、清洁能源产业基地、高原藏药研发康养基地、新型城镇化示范区、藏东南门户枢纽，建设大型水电开发服务保障基地，完善机械装配、建材加工、施工供电、氢能运输、节能环保等设施。
构建雅江经济发展带。融入雅江流域协作格局，以雅鲁藏布江河谷区域、重要交通沿线的城镇为载体，加强与拉萨、山南、日喀则等城市协作发展，发挥比较优势，优化城镇布局，推动米林—墨脱—朗县联动发展，沿线布局清洁能源上下游产业链。接入国家高速路网，完善交通网、电网、水网等基础设施网络，打造区域经济发展的核心引擎。
构建铁路沿线发展带。依托川藏、拉林、滇藏等重要干线铁路，建设经济发展带，健全综合交通网络，打通东向跨省（区）通道，规划布局新型城镇，辐射带动沿线地区协同发展。发展特色优势产业，建设高原特色现代产业平台，提升基础设施互联互通水平，建设现代物流体系，引导人口、政策、资金、项目等资源要素沿轴集聚，打造高原经济高质量发展大动脉。
构建兴边富民发展带。承接中央关于边疆地区振兴发展的差异化支持政策，立足各县（市）发展现状和禀赋优势，构建以边境县城为节点、边境村镇为支撑的沿边发展带，推动边境县（市）高质量发展，强化固边设施，扩展城镇容量，发展特色产业，巩固基础设施，加强公共服务，促进群众安居乐业。
鼓励各县（市、区）在因地制宜发展的基础上，从全市产业补链延链强链的角度，有针对性地开展功能互补，优化区域协同发展格局。墨脱县发挥服务保障重大项目和生态旅游资源优势，打造能源强县、旅游名县、生态富县、美丽边城，塑造“喜马拉雅南麓美丽边城”，提质扩容产业园区，开展边境沿线高质量发展示范。波密县发挥G318和川藏铁路汇集的交通优势，建设藏东南交通物流、经济商贸、旅游集散、医疗应急枢纽。工布江达县发挥旅游、农牧、光伏等产业先发优势，做优文旅产业、高原户外体育、特色农牧业，加快推进风光荷储清洁能源、绿色矿业开发。朗县推进绿色工业园区建设，构建清洁能源驱动、绿色制造支撑、特色品牌赋能的发展格局，发展水能、光能、水泥、绿色建材等产业，品牌化、精品化发展农牧特色产业，全力打造城乡协调发展样板县、产业转型先行县、富民强边生态示范县。察隅县发挥滇藏旅游门户区位优势和清洁能源储备优势，深度对接大香格里拉经济圈，建设清洁能源园区，打造清洁能源强县、滇藏旅游首县、农林产业名县、强边富民要县和藏东南县域经济高质量发展示范区。
tr of above
Chapter 10 Optimizing Spatial Structure and Shaping a “One Core, Three Belts, Five Clusters” Pattern
Promoting complementary advantages and differentiated development within the city, enhancing the core driving capacity of Bayi-Milin, constructing the Yarlung Tsangpo Economic Development Belt, the Railway Development Belt, and the Border Prosperity Development Belt, and cultivating five county-level economic development engines in Medog County, Gongbo’gyamda County, Bomi County, Lang County, and Zayu County.
Section 1 Enhancing the Driving Capacity of the “One Core”
Promoting the coordinated development of Bayi-Milin. Building the Bayi-Milin coordinated development zone into the core of the city’s development, promoting integrated planning, construction, and management, optimizing the functional layout of Bayi urban area, Milin urban area, Nyingtri Economic Development Zone, and Pai Town area, and promoting the quality improvement and expansion of the urban area. Relying on important transportation corridors such as G219, G318, and the Linla Highway, constructing a “human-shaped” development pattern for Bayi-Milin coordination. Strengthening coordinated development in industrial division of labor and cooperation, infrastructure connectivity, public service sharing, and social governance linkage, improving the quality of urban services, and jointly building a clean energy headquarters base, a cultural tourism consumption cluster, and a modern service industry highland. The city will attract leading enterprises in the clean energy industry to develop related industries such as equipment manufacturing, building materials, supercomputing, smart grids, hydrogen and oxygen production, scientific research and consulting, surveying and design, and technical training. It will also develop supporting industries such as plateau biology, green industry, traditional Chinese and Tibetan medicine, modern services, and logistics and trade, playing a vital supporting and leading role in the economic and social development of Nyingtri. Bayi District will leverage its advantages as a central urban area and its industrial agglomeration effect to strengthen Nyingtri City as a core growth hub, a western green industry center, and a hub for science and technology talent and modern service industries in the autonomous region. It aims to build Nyingtri into a core city of the Yarlung Tsangpo Economic Belt, a livable and business-friendly “Peach Blossom City,” and a modern city with ethnic characteristics. The city will plan and construct a railway station area to achieve high-level agglomeration of population, economy, and resources. Milin City will leverage the agglomeration effect of its “one river, two roads, one airport, and two stations” to build itself into a nationally important ecological and cultural tourism destination, a clean energy industry base, a plateau Tibetan medicine research and health care base, a new urbanization demonstration zone, and a gateway hub in southeastern Tibet. It will also construct a large-scale hydropower development service and support base and improve facilities for machinery assembly, building materials processing, construction power supply, hydrogen transportation, and energy conservation and environmental protection.
Section 2. Strengthening the Leading Role of the “Three Belts”
Constructing the Yarlung Tsangpo River Economic Development Belt. Integrating into the Yarlung Tsangpo River Basin cooperation framework, using towns along the Yarlung Tsangpo River valley and important transportation routes as carriers, strengthening cooperative development with cities such as Lhasa, Shannan, and Shigatse, leveraging comparative advantages, optimizing urban layout, promoting the coordinated development of Milin-Medog-Langxian, and developing a clean energy upstream and downstream industrial chain along the route. Connecting to the national expressway network, improving infrastructure networks such as transportation, power grids, and waterways, creating a core engine for regional economic development.
Constructing the Railway Development Belt. Relying on important trunk railways such as the Sichuan-Tibet, Lhasa-Nyingchi, and Yunnan-Tibet lines, constructing an economic development belt, improving the comprehensive transportation network, opening up eastward inter-provincial (regional) channels, planning and laying out new towns, radiating and driving the coordinated development of areas along the route. Developing distinctive and advantageous industries, building a modern industrial platform with plateau characteristics, improving the level of infrastructure interconnection, constructing a modern logistics system, guiding the aggregation of resources such as population, policies, funds, and projects along the axis, creating a major artery for high-quality plateau economic development.
Constructing the Border Prosperity and People’s Well-being Development Belt. Following the central government’s differentiated support policies for the revitalization and development of border areas, and based on the current development status and inherent advantages of each county (city), a development belt along the border will be constructed, with border county towns as nodes and border villages and towns as supports. This will promote high-quality development in border counties (cities), strengthen border security facilities, expand urban capacity, develop distinctive industries, consolidate infrastructure, enhance public services, and promote a peaceful and prosperous life for the people.
Section 3: Promoting the Quality Improvement of the “Five Clusters”
Each county (city, district) is encouraged to develop in accordance with local conditions, and from the perspective of strengthening, extending, and extending the city’s industrial chain, to carry out targeted functional complementarity and optimize the regional coordinated development pattern.
Medog County will leverage its advantages in serving and supporting major projects and its ecotourism resources to build itself into a strong energy county, a famous tourism county, an ecologically prosperous county, and a beautiful border town, shaping a “Beautiful Border Town on the Southern Foothills of the Himalayas,” upgrading and expanding its industrial parks, and carrying out high-quality development demonstrations along the border.
Bomi County will leverage its transportation advantages at the confluence of G318 and the Sichuan-Tibet Railway to build a transportation and logistics, economic and trade, tourism distribution, and medical emergency hub in southeastern Tibet.
Gongbo’gyamda County leverages its early advantages in tourism, agriculture, animal husbandry, and photovoltaic industries to optimize its cultural tourism, plateau outdoor sports, and distinctive agriculture and animal husbandry, while accelerating the development of clean energy through wind, solar, and solar power, as well as green mining.
Lang County promotes the construction of a green industrial park, building a development pattern driven by clean energy, supported by green manufacturing, and empowered by distinctive brands. It develops industries such as hydropower, solar power, cement, and green building materials, and promotes the branding and refinement of its distinctive agricultural and animal husbandry industries, striving to become a model county for coordinated urban-rural development, a pioneer in industrial transformation, and a demonstration county for ecological prosperity and border strength.
Zayu County leverages its advantageous location as a gateway to Yunnan and Tibet and its clean energy reserves, deeply connecting with the Greater Shangri-La Economic Circle, constructing a clean energy park, and aiming to become a leading county in clean energy, a premier county for Yunnan-Tibet tourism, a renowned county in agriculture and forestry, a key county for border prosperity and people’s well-being, and a demonstration zone for high-quality economic development in southeastern Tibet.
深入实施以人为本的新型城镇化战略，优化城镇体系布局，以县域为基础推进城乡融合发展，提高农业农村现代化水平，促进城乡共同繁荣。
提升城区功能品质。塑造特色城市风貌，构建山水公园城市形态，彰显民族特色，把林芝打造成为创新、宜居、美丽、韧性、文明、智慧的高原现代化人民城市。推进中心城区提质升级，建设城市门户中心、产业服务中心、公共服务中心，提升城市吸引力，提高城市综合承载力。打造精致活力的高品质城市空间，高水平建设城市文化场馆、休闲场所，推动“一河两岸”、工布印象文化街区、工布天街等重点片区风貌提升。开展城市体检，实施城市更新行动，争创城市更新示范城市，实施老旧街区、老旧厂区、城中村等重点片区更新改造，开展既有建筑改造。规划建设重要基础设施、公共设施、保障性安居工程等。建设安全舒适绿色智慧的“好房子”，实施房屋品质提升工程、物业服务质量提升行动，建立房屋全生命周期安全管理制度。加快完善无障碍设施建设，科学规划布局全龄友好设施。提高城市精细化、科学化治理能力，推进智慧化管理，优化城市标准化管理体系，提升城市现代化治理水平。
优化城镇基础设施建设。优化城区路网，开展交通拥堵整治行动。推动公共停车场充换电、加气设施建设。推进安全韧性提升行动，实施综合管廊示范建设，加强城市地下管网、污水、垃圾处理设施提升改造。加强公共基础设施建设，推动城市应急备用水源建设和管网互通。推进雨污分流改造、城市内涝治理。探索建设城镇燃气设施体系。有序建设城镇供氧基础设施，实施供暖供氧标志性工程，探索中心城区集中供氧，完善医院、酒店、游客服务等区域供氧设施建设。保障高海拔地区供氧需求，推进偏远城镇分散供氧建设。有序开发地下空间，集成停车、商业、体育等设施。健全城镇供暖体系，实施清洁能源供暖工程。打造“无废城市”，推进生活垃圾分类处理系统建设，完善垃圾分类收集处置体系、生活垃圾焚烧处理设施，构建“村收集、乡转运、县处理”垃圾收运处理体系。到“十五五”期末，力争实现城市生活污水集中处理率达到99%、城市生活垃圾处理率达到100%、县城及以上城镇生活污水集中处理率达到96.5%、县城生活垃圾处理率达到100%、城市公共供水普及率达到100%、城市建成区平均路网密度达到6.11公里/平方公里。
补齐县城建设短板弱项。实施县城城镇化水平提升行动，以各县县城为重点，分类推进以县城为重要载体的城镇化建设，提升产业支撑能力、公共服务水平，实施城市更新和安全韧性提升行动。支持县城结合区位特点、资源禀赋、产业基础，培育特色农牧、绿色工业、商贸物流、文化旅游等就业容量大的传统产业，推进优势项目和企业向重点产业园区聚集，围绕优势产业培育要素集聚度高、比较优势突出的县域发展动力源。升级产业培育、公共服务、环境卫生、市政公用等设施，补齐短板弱项，增强县城综合承载能力，吸纳产业和人口集聚。围绕推动农牧业发展，建设具有预冷处理、初级加工、分拣、储存、包装、信息处理、交易等功能的冷库和集配中心，建设现代化农事服务中心。
建设高原特色小城镇。培育一批产业聚集度高、特色优势突出的县域强镇、中心乡镇，增强城镇综合承载能力，加快补齐公共服务短板。坚持因地制宜、规模适度，打造鲁朗、派镇、背崩等一批具有工程保障、康养旅游、商贸流通、守边固边等功能的高原特色小城镇，建设一批“小而精”“小而美”“小而特”的精品集镇。合理规划布局，培育特色产业，强化地域优势，改善生态环境，加强生态环境和历史文化遗产保护，突出林芝特色和民族风格，增强对周边农牧区人口的就业吸纳能力，建设成为服务农牧民的区域中心。
提升农牧业转移人口市民化质量。进一步深化户籍制度改革，实行经常居住地登记户口制度，全面放开县城区及建制镇落户政策，落实自治区下放驻藏部队家属（子女）随军落户审批要求。创造便利户籍登记环境，放宽集体户设立条件，简化落户程序，优化户籍迁移流程。实施新一轮农牧业转移人口市民化行动，以吸引外来农牧业转移人口为主、以本地农牧业转移人口为补充，以中心城区、腹心县城为主要载体，扩大就业供给，完善公共服务，加强社会保障，推动有意愿、有能力进入城镇就业生活的农牧业转移人口更好融入城市。扩大基本公共服务覆盖范围，推行由常住地登记户口提供基本公共服务制度，推动城镇基本公共服务常住人口全覆盖。完善农牧业转移人口多元化住房保障体系，将符合条件的农牧业转移人口纳入住房保障范围。扩大农牧业转移人口社会保障覆盖面，健全灵活就业人员、农牧民工、新就业形态人员社保制度，完善社保关系转移接续政策，有序推进居住证持有人在常住地申办最低生活保障。健全城镇建设用地增加规模与吸纳农牧业转移人口落户数量挂钩机制，完善财政农牧业转移人口市民化奖励机制。
促进城乡要素双向流动。一体化推进城乡规划建设管理体系，有序推动城镇基础设施和公共服务向乡村延伸，实现城乡基础设施一体化规划建设管护。加快补齐城乡基础设施短板，实施供暖供氧、生态环境基础设施建设、城镇供水提质改造、农房抗震加固等城乡建设领域四大民生标志性工程，推进城乡电网、通信网等均等化建设。推进城乡基本公共服务普惠共享，推进县域公共服务设施提标扩面。健全农村金融服务体系，依法合规开展农村集体经营性建设用地使用权、农民房屋财产权、集体林权、承包地经营权、集体资产股权等担保融资。允许入乡就业创业人员在原籍地或就业创业地落户并享受相关权益。
tr of above
Chapter 11 Deepen the integrated development of urban and rural areas and promote new urbanization and rural revitalization
Deeply implement the new people-centered urbanization strategy, optimize the layout of the urban system, promote the integrated development of urban and rural areas on the basis of counties, improve the level of agricultural and rural modernization, and promote the common prosperity of urban and rural areas.
Section 1 Promoting New Urbanization Construction
Improve the functional quality of urban areas. Shape a characteristic urban style, construct a landscape park urban form, highlight national characteristics, and build Nyingtri into a modern people’s city on the plateau that is innovative, livable, beautiful, resilient, civilized, and intelligent.
Promote the quality upgrading of central urban areas, build urban gateway centers, industrial service centers, and public service centers to enhance the city’s attractiveness and improve the city’s comprehensive carrying capacity. Create an exquisite and dynamic high-quality urban space, build high-level urban cultural venues and leisure venues, and promote the improvement of the style of key areas such as “Two Banks of the River”, Gongbu Impression Cultural District, and Gongbutian Street.
Carry out urban physical examinations, implement urban renewal actions, strive to create an urban renewal model city, implement the renewal and renovation of key areas such as old neighborhoods, old factory areas, and urban villages, and carry out the renovation of existing buildings. Plan and construct important infrastructure, public facilities, affordable housing projects, etc. Build safe, comfortable, green and smart “good houses”, implement housing quality improvement projects and property service quality improvement actions, and establish a safety management system for the entire life cycle of the house. Accelerate the improvement of barrier-free facilities and scientifically plan and layout all-age friendly facilities. Improve the city’s refined and scientific governance capabilities, promote smart management, optimize the city’s standardized management system, and enhance the level of urban modernization governance.
Optimize urban infrastructure construction. Optimize urban road networks and carry out traffic congestion control actions. Promote the construction of charging, swapping and gas refilling facilities in public parking lots. Promote actions to improve safety and resilience, implement demonstration construction of comprehensive pipe corridors, and strengthen the upgrade and renovation of urban underground pipe networks, sewage, and garbage treatment facilities. Strengthen the construction of public infrastructure and promote the construction of urban emergency backup water sources and interconnection of pipe networks.
Promote the transformation of rainwater and sewage diversion and urban waterlogging control. Explore the construction of urban gas facilities system. Orderly build urban oxygen supply infrastructure, implement landmark projects for heating and oxygen supply, explore centralized oxygen supply in central urban areas, and improve the construction of regional oxygen supply facilities such as hospitals, hotels, and tourist services. Ensure oxygen supply needs in high-altitude areas and promote the construction of decentralized oxygen supply in remote towns.
Develop underground space in an orderly manner and integrate parking, commercial, sports and other facilities. Improve urban heating systems and implement clean energy heating projects. Create a “waste-free city”, promote the construction of a domestic waste classification and processing system, improve the garbage classification collection and disposal system and domestic waste incineration treatment facilities, and build a “village collection, township transfer, and county treatment” garbage collection, transportation and processing system.
By the end of the “15th Five-Year Plan” period, we will strive to achieve a centralized treatment rate of urban domestic sewage reaching 99%, a rate of urban domestic waste treatment reaching 100%, a centralized treatment rate of domestic sewage in towns and above in counties and above reaching 96.5%, a rate of domestic waste treatment in counties reaching 100%, a penetration rate of urban public water supply reaching 100%, and an average road network density in urban built-up areas reaching 6.11 kilometers per square kilometer.
Section 2: Enhancing the County’s Carrying Capacity
Make up for the shortcomings of county construction. Implement actions to improve the level of urbanization in counties, focus on each county, promote urbanization construction in a classified manner with county towns as an important carrier, improve industrial support capabilities and public service levels, and implement actions to improve urban renewal and safety and resilience.
Support counties to combine location characteristics, resource endowments, and industrial foundations to cultivate traditional industries with large employment capacity such as characteristic agriculture and animal husbandry, green industry, trade logistics, and cultural tourism, promote the clustering of advantageous projects and enterprises in key industrial parks, and cultivate county development power sources with high concentration of factors of production and outstanding comparative advantages around advantageous industries.
Upgrade industrial cultivation, public services, environmental sanitation, municipal public facilities and other facilities to make up for shortcomings and weaknesses, enhance the comprehensive carrying capacity of the county, and absorb industry and population agglomeration. Focusing on promoting the development of agriculture and animal husbandry, build cold storage and distribution centers with functions such as pre-cooling, primary processing, sorting, storage, packaging, information processing, and trading, and build a modern agricultural service center.
Build small towns with plateau characteristics. Cultivate a group of strong county towns and central townships with high industrial aggregation and outstanding characteristics and advantages, enhance the comprehensive carrying capacity of cities and towns, and speed up the filling of shortcomings in public services.
Adhere to local conditions and moderate scale, build a number of plateau characteristic small towns such as Lulang, Paizhen, Beibeng, etc. with functions such as engineering support, health and wellness tourism, commercial circulation, and border protection, and build a number of “small but exquisite”, “small but beautiful” and “small but special” boutique market towns.
Reasonable planning and layout, cultivating characteristic industries, strengthening regional advantages, improving the ecological environment, strengthening the protection of the ecological environment and historical and cultural heritage, highlighting Nyingchi’s characteristics and national style, enhancing the employment absorption capacity of the population in surrounding agricultural and pastoral areas, and building it into a regional center serving farmers and herdsmen.
Section 3 Promoting the Integrated Development of Urban and Rural Areas
Improve the quality of urbanization of people transferred from agriculture and animal husbandry. Further deepen the reform of the household registration system, implement the household registration system for permanent residence, fully liberalize the settlement policy in counties, urban areas and organized towns, and implement the approval requirements for the family members (children) of the autonomous region’s decentralized troops stationed in Tibet to settle down with the army.
Create a convenient household registration environment, relax the conditions for establishing collective households, simplify the settlement procedures, and optimize the household registration transfer process. Implement a new round of citizenization actions for the agricultural and animal husbandry migrant population, mainly attracting the external agricultural and animal husbandry migrant population, supplementing the local agricultural and animal husbandry migrant population, using central urban areas and hinterland counties as the main carriers, expanding employment supply, improving public services, strengthening social security, and promoting the agricultural and animal husbandry migrant population who are willing and able to enter urban employment and life to better integrate into the city. Expand the coverage of basic public services, implement the system of providing basic public services based on registered residence at the place of permanent residence, and promote the full coverage of basic public services in urban areas for the permanent population. Improve the diversified housing security system for the migrant population in agriculture and animal husbandry, and include eligible migrant populations in agriculture and animal husbandry into the scope of housing security.
Expand the coverage of social security for the migrant population in agriculture and animal husbandry, improve the social security system for flexible employment, agricultural and animal husbandry migrant workers, and people with new employment forms, improve the transfer and continuation policy of social security relationships, and orderly promote the application of minimum living security for residence permit holders in their permanent residence. We will improve the mechanism linking the increase in the scale of urban construction land with the number of agricultural and animal husbandry migrant residents, and improve the financial reward mechanism for the urbanization of agricultural and animal husbandry migrant workers.
Promote the two-way flow of urban and rural factors. Integrate urban and rural planning and construction management systems, promote the extension of urban infrastructure and public services to rural areas in an orderly manner, and achieve integrated planning, construction, management and maintenance of urban and rural infrastructure.
Accelerate the completion of shortcomings in urban and rural infrastructure, implement four major livelihood landmark projects in urban and rural construction areas such as heating and oxygen supply, ecological environment infrastructure construction, urban water supply quality improvement, and earthquake-resistant reinforcement of rural houses, and promote the equalization of urban and rural power grids and communication networks. Promote the inclusive sharing of basic public services in urban and rural areas, and promote the upgrading and expansion of county-level public service facilities. Improve the rural financial service system, and carry out secured financing in accordance with laws and regulations regarding rural collective commercial construction land use rights, farmers’ housing property rights, collective forest rights, contracted land management rights, and collective asset equity. People who come to work and start businesses in rural areas are allowed to settle in their place of origin or place of employment and start-up business and enjoy relevant rights and interests.
| 专栏7：城乡融合发展建设工程 |
| 01 新型城镇化建设
道路桥梁。实施林芝尼洋河大桥、尼洋河大桥至幸福小区片区市政道路、觉木大桥*工程，实施经开区、火车站片区相关道路建设项目。 城市更新。开展城区老旧小区、老旧街区、老旧厂区改造，实施毛纺厂历史建筑（街区）保护利用、毛纺厂保护修缮、火柴厂保护修缮等工程。 市政设施。实施城市供气——天然气管网和储气设施、第一水厂提升扩容、火车站及仲果片区污水处理厂、军分区片区供水系统提升改造、经开区拓展区供水厂、排涝综合治理、河西污水处理厂提升改造、巴吉污水厂提标扩容、河西新城区排涝综合治理、河西新区排水管网改造*等项目。 |
| 02 县城和小城镇建设
县城建设。实施重大项目服务保障区供水保障、污水处理厂*、燃气站、空港小镇供水厂、市政连通道路、新城区排涝治理、城区污水处理厂提标扩能、污水处理厂、火车站片区和新城区市政道路*、火车站片区污水处理厂、清洁能源基地市政基础设施、临山道路改造及市政配套。推动老旧小区改造、市政道路环线、县城供暖、雨污分流改造、供水管道延伸及改造、污水处理厂扩容改造、乡镇供氧等项目建设。 重点镇建设。推进重点中心城镇建设，实施重点镇基础设施提升工程。县乡水管网更新改造，污水处理设施、市政道路*、取水管网*、便民服务业务用房*、建设，推动村镇供暖建设等。 |
推进农牧区现代化建设。学习运用“千万工程”经验，深化“一村一策”，分类有序、片区化推进乡村振兴，建立财政优先保障、金融重点倾斜、社会主体参与的多元化投入机制，建设高原宜居宜业和美乡村。加强联村共建、联乡联建，实现组团式发展。分类分步稳慎推进村庄规划编制，提高编制质量。统筹优化村镇布局，稳步开展全域土地综合整治，统筹安排农牧区各类空间，保障特色农牧产品种植养殖、初级加工、冷链物流、乡村旅游等乡村特色产业用地需求，推动乡村旅游线路优化、重点区域提档升级。整治提升农村人居环境，推动农牧区基本具备现代生活条件，加强污水垃圾处理，开展村容村貌提升，构建长效管护机制，完善卫生厕所等建设，打造优质生活空间。常态化全覆盖开展农村房屋安全隐患排查整治，开展房屋抗震鉴定，深入实施农村危房改造、农房抗震改造，探索建立农户住房改造政府扶持机制，切实保障农房安全。开展“树立农牧民新风貌”行动，实施农户“客、寝、厨”功能分区改造。统筹推进城乡供水一体化、集中供水规模化、小型供水工程规范化建设改造，提升农牧区供水县域统筹水平。实施农牧区乡镇公路老旧路改造及路面拓宽工程，推动城乡交通运输一体化。巩固提升农牧区电力保障水平，加强农村分布式可再生能源开发利用。提高偏远农牧区电信普遍服务水平，提升通信网络覆盖率。推进农村客货邮融合发展，完善农牧区快递物流配送体系，加强推进快递进村，提升村级快递物流综合服务。在偏远农牧地区，因地制宜实施“光伏+采暖”、电力供暖，探索农牧民电力自发自用。开展乡村绿化工作，开展农牧区“四旁”植树行动，打造林水相依、林路相依、林居相依的乡村生态系统。
建立常态化防止返贫致贫机制。持续巩固拓展脱贫攻坚成果，加强农牧区低收入人口帮扶，缩小城乡居民生活水平差距，牢牢守住不发生规模性返贫底线。聚焦提升产业发展、基础设施、公共服务、群众收入水平。完善助农兴农包保、“点对点”抓乡村振兴示范工作机制、覆盖农牧区人口的常态化防止返贫致贫机制，建立农牧区低收入人口和偏远地区分层分类帮扶制度。推动帮扶产业“巩固一批、升级一批、盘活一批、调整一批”，增强内生动力，抓好脱贫劳动力稳岗就业。巩固搬迁扶持成效，化解矛盾隐患，持续提升搬迁安置点基础设施和公共服务。引入经营主体，带动搬迁群众开展技能培训、转移就业、产业增收。强化消费帮扶，把消费帮扶作为促进群众持续增收的重要手段，开展产品宣传推广，结合农牧区电子商务等方式拓宽产品销售渠道。聚焦群众增收，加强项目带动，围绕雅下水电工程、川藏铁路等重大项目用工需求，全面实现组织化、规范化参工参建，强化劳务就业服务保障。强化农牧区集体资产管理，健全脱贫攻坚国家投入形成的资产长效管理机制和保值机制，探索国家投资产业项目折股量化到户，推动有条件的县率先建成共同富裕县。
构建现代化农牧业发展机制。探索成立农牧业发展集团，整合全市零散农牧业资源和集体“三资”，实行公司化运营。组建专业化经营团队，统筹生产运营、品牌塑造、市场营销。大力发展村集体经济，加强农牧区集体资产管理，规模化发展特色农牧业、乡村旅游，打造乡村振兴示范带。创建“林芝优品”优质农牧产品品牌，实现现代农牧业“生产+科技+加工+品牌+营销”全产业链融合发展。吸收工业企业、社会资金、电商平台、金融机构、村集体等多种渠道资金投资入股。建立既满足适度规模经营需求，又充分保障农牧民权益的组织体系，形成“公司+村集体+新型经营主体+农牧民”等多方共赢的协作机制。鼓励有条件的村庄成立村集体公司。健全农牧业社会化服务体系，围绕农牧业发展共性需求，提供代耕代牧、农资供销、技能培训、机械服务、科技服务，建设现代化农事服务中心。构建产权清晰、分配合理的运行机制，发展集体资产租赁等新业态，多途径增加农牧民收入。强化产业发展联村联农带农，优化农牧区集体产权管理制度，建立以县或乡镇为单位统筹产业发展联村集体经济工作机制。建立健全县级供销合作社“三会”制度，以社有企业为抓手，完善基层服务网点，提升服务农牧民能力。
深化农牧区综合改革。落实农牧区“三个长期不变”政策，进一步放活承包地经营权，完善对被征地农牧民合理、规范、多元保障机制。稳慎改革农村宅基地制度，加快房地一体的宅基地确权颁证，探索宅基地“三权分置”实现形式，推动宅基地审批、建房规划许可、不动产登记等联审联办，推动国土变更调查成果共享，加强信息互通和业务协同。建立城乡统一的建设用地市场，稳步推进农村集体经营性建设用地入市，允许农村集体在农民自愿前提下，依法把有偿收回的闲置宅基地、废弃的集体公益性建设用地转变为集体经营性建设用地入市。集约利用农村集体经营性建设用地，盘活用好闲置土地和房屋，保障乡村发展用地。完善宅基地管理相关制度，允许农户合法拥有的住房通过出租、入股经营、合作开发、委托经营等方式盘活利用，整合闲置宅基地，优先用于还绿、复垦、乡村旅游、农牧业生产经营、农牧产品初级加工、冷链物流用房等用途。深化农村集体产权制度改革。依法维护进城落户农牧民土地承包权、宅基地使用权、集体收益分配权，允许农户通过出租、入股、合作等方式盘活利用住房，探索进城落户农牧民集体收益分配权自愿有偿退出途径。
| 专栏8：高原宜居宜业和美乡村 |
| 实施高原宜居宜业和美乡村建设、常态化帮扶补助资金支持乡村特色产业发展、补齐基础农村基础设施短板、农村人居环境整治等项目，开展县域农房抗震加固改造，实施游牧民帐篷工程。 |
第十二章 增进民生福祉水平，促进各族群众共同富裕
坚持尽力而为、量力而行，加强普惠性、基础性、兜底性民生建设，做好外来人口公共服务需求研判，聚焦民生保障领域精准施策，推动就业、教育、文化、医疗卫生、社会保障等事业一体化发展，解决好群众最关心最直接最现实的问题，提升各族群众的获得感、幸福感、安全感，扎实推进共同富裕。
实施就业优先战略。健全精准高效就业公共服务体系，加强基层就业创业公共服务平台建设，提高就业服务数字化智能化水平。出台积极就业政策，实施就业服务增效、职业技能提质、劳务品牌培育、创新创业优化“四大工程”。大力开发就业岗位，统筹城乡就业政策体系，深化户籍、用人、档案管理服务，优化创业促进就业政策环境。围绕高校毕业生高质量就业，加强产业带动，推进重大项目吸纳，强化民生服务，开发基层岗位，拓宽民营企业和中小微企业渠道，稳定和扩大机关事业单位、央（国）企招聘规模，支持高校毕业生就业创业。在乡镇、村庄设立乡村振兴车间，提高农牧民转移就业组织化水平，实现就地就近就业，促进农牧民转移人口向职业农民、产业工人转型。支持灵活就业、新就业形态健康发展，强化农民工、退役军人、残疾人等重点群体就业支持。对帮扶监测户落实“一户一策”，促进就业增收。推动机关和事业单位面向残疾人、高校毕业生、退役军人定向招录，实施企业助力残疾人就业行动，设立残疾人辅助性就业机构，扩充辅助性就业岗位。加强劳动关系协商协调。
加强就业技能培训。构建终身职业技能培训体系，深入实施“技能照亮前程”培训行动，依托重大工程建设、优势产业发展，构建政府、院校、行业、企业协同的“政校行企”培训机制，建设公共实训基地、高技能人才培训基地。打造特色技能品牌，推行“订单式、定岗式、定向式”培训，开展“招生即招工、入校即入厂”企业新型学徒制培训，确保培训与就业无缝衔接，提升劳动者市场竞争力。落实就业援助措施，加大对大龄、残疾、长时间失业等就业困难群体的就业兜底，提高公益性岗位供给质量，加强职业技能培训服务，确保零就业家庭动态清零。
积极开展以工代赈。以农业农村基础设施领域、重点工程项目为重点，聚焦返乡农牧民工、脱贫人口等低收入群体，全面推广以工代赈模式，围绕城乡融合发展、农牧业农牧区领域中小型基础设施建设，加大项目谋划储备。挖掘工程建设、服务保障、项目管理、建后管护等各环节务工岗位，通过岗前培训等方式，提升务工农牧民就业技能，高标准高质量组织实施以工代赈项目，吸纳周边农牧民就业，确保及时足额发放劳务报酬。
促进基础教育扩优提质。强化与人口变化相适应的教育资源配置，实施学前教育普及普惠工程，稳步增加公办幼儿园学位供给。推进县域义务教育优质均衡发展，深化集团化办学、城乡共同体建设，促进优质教育资源向基层倾斜，保障特殊群体接受义务教育权利。改善中小学办学条件，升级教学设备，补齐教室、实验室、图书室等设施短板。提升初高中办学质量，扩大优质高中教育资源，新建林芝市第三高级中学，落实高考综合改革要求。推动中高职贯通联合培养、产教融合。实施新时代强师工程，优化教师资源配置，推广“局管校聘”，建立“市县校”一体化教师培训体系。实施教研专业引领工程，建设教育信息化融合应用引领区，加强校园文化建设。实施大思政课工程，建设大中小学思政课一体化共同体。统筹推进“双减”和教育教学质量提升，深化课程和课堂改革，加强心理健康教育和科学教育。实施教育数字化战略。推进课程改革，全面落实课程方案，完善教育质量评价体系。发展普惠融合的特殊教育，推动普通教育、职业教育、医疗康复与特殊教育融合发展，畅通残疾学生中高等职业教育渠道，提高残疾人职业教育质量。
打造高原体育名城。建设高原体育运动训练基地，依托独特海拔梯度优势，谋划建设墨脱县（1000米）、察隅县和易贡乡（2000米）、巴宜区（3000米）三级“123”高原体育运动训练基地。扩大户外运动规模，开发高原徒步、漂流、滑雪等特色体育产品，培育“户外天堂·运动林芝”品牌，争取创建高质量户外运动目的地。持续办好南迦巴瓦高原体育大会系列品牌赛事，建设全民健身服务设施，加强青少年体育人才培养，健全竞技体育管理体系，提升“体育+”融合发展效应。
完善公共文化服务体系。加强红色文化、历史文化资源保护利用，深入挖掘“三布四隅”等特色民俗文化和“唐蕃古道”“茶马古道”等历史内涵，建立文物遗迹、典藏文籍、历史文化名城村落、非物质文化遗产等清单项目库。完善现代公共文化服务体系，搭建公共数字文化平台，推动文化产品、设施、服务向农牧区倾斜，加大基层和边境地区文化资源投入。提升县级综合文化活动中心、乡镇文化站服务功能，以人口较多村庄、边境村庄为重点，打造新型公共文化空间。实施中华优秀传统文化传承发展工程、文化惠民工程、文化润边工程，推动优质资源直达基层。实施新时代林芝文艺精品工程，建立文艺创作激励奖励机制，丰富优质文化产品供给。构建全媒体传播体系，深化市级广电融合工程，提升网络传播管理能力。实施文化数字化战略，推动公共文化数字化建设，拓展公共文化服务智慧应用场景。加强档案管理工作。
加强优质文化产品供给。坚持以人民为中心的创作导向，实施新时代林芝文艺精品工程，加强重大题材文艺创作，优化网络视听和出版，推出品牌文化娱乐节目。打造精品化博物馆，创作具有品牌效应的舞台剧。实施特色文化产业培育工程，健全文化产业体系和市场体系，丰富文化产品供给，完善文化产业资金和项目扶持政策，强化文化品牌知识产权保护。深化文化领域管理制度改革，推动历史文化数字化保护管理与资源活化利用。深化国有文艺院团改革，完善文艺创作激励奖励机制，推动文艺创作演出推广一体化发展。
提升公立医院发展水平。加强公共卫生服务体系建设，建设区域医疗中心、重点临床专科、紧急医疗救援基地，推动医学中心、藏医藏药研发机构落地林芝。推进市级重点专科建设、市县两级人民医院（藏医院）等级创建与复审。优化分级诊疗体系，促进医防结合、藏药与中医药结合。深化疾病预防控制体系改革，加强疾病预防控制、卫生应急管理、医疗卫生服务。深化以公益性为导向的公立医院改革，探索符合林芝实际的医改新举措，建立以公益性医疗服务为主导的收费和动态编制调整机制，优化薪酬体系。加强医疗卫生监管，引导民营医院规范发展。完善“互联网+医疗健康”平台，推进健康数据信息跨机构互通、跨区域共享。完善防蛇毒血清库建设。
推动城乡医疗卫生服务一体化建设。深入推进紧密型医共体和医联体建设，创新服务模式，促进资源下沉和均衡布局。加强基层医疗卫生机构特色科室建设，优化基层硬件设施建设，加大基层卫生人才的培养引进力度，优化队伍结构。加强基层医疗卫生机构防病治病和健康管理能力。建设“1+4+N”高原医疗救助和应急转运保障体系。
完善健康服务体系。建设高水平的高原心血管病研究所、病媒生物实验室、职业病防治机构，完善群众健康体检和地方病、高原病预防救治机制，开展居民健康体检和大骨节病、包虫病等“七项行动”。深化疾病预防控制体系改革，持续做好妇女“两癌”综合防治，开展孕产妇、婴幼儿、学生、职业人群、老年人等重点人群的健康促进和预防保健服务，构建老年人健康服务网络。建立统一高效的医保、医疗、医药政策协同、信息联通、监管联动机制。完善精神卫生服务体系。
健全覆盖全人群、全生命周期的人口服务体系，完善人口统计和监测体系。制定外来人口服务保障和落户定居政策体系。优化生育支持政策和激励措施，落实生育保险、生育休假、生育补贴制度，建强“市县乡”三级妇幼健康服务体系，加强普惠托育服务，完善城乡社区便利儿童服务设施，建设婚育友好型社会。支持用人单位办托、社区嵌入式托育、家庭托育点等多种模式发展，推动农牧区托幼一体化发展。健全城乡养老服务网络，构建以居家为基础、社区为依托、机构为补充、医养相结合的养老服务体系，补齐农村养老服务短板。结合实际需要建设养老服务、老年助餐服务等设施，在实现城市社区助餐服务全覆盖的基础上，逐步推进农牧区老年人助餐服务。发展“银发经济”，推动养老服务多元化、专业化发展。
健全多层次社会保障体系。坚持“全覆盖、保基本、多层次、可持续”方针，健全以“基本保险+补充保险+商业保险+社会救助”为框架、逐步覆盖外来人口的社会保障体系。完善城乡五险制度，健全覆盖城乡的基本养老保险和医疗保险制度，扩大失业、工伤、生育保险覆盖面，将更多非公有制经济从业人员、农民工、灵活就业人员、新就业形态劳动者纳入保障范围，努力实现应保尽保。
健全社会福利制度和社会救助体系。加强重点群体社会保障，强化城乡低保、特困供养、社会救助的动态管理与精准施救，保障困难群众基本生活。完善对残疾人、孤儿、事实无人抚养儿童、困难妇女等的保障服务和福利制度，加强未成年人保护工作，保障妇女儿童合法权益。做好退役军人服务保障，巩固军政军民团结。完善对孤寡、失能老年人的关爱照护服务，完善集中供养服务。发展社会工作、慈善事业，形成政府保障与社会参与相结合的良好格局。
加大住房保障力度。建立多主体供给、多渠道保障、租购并举的住房保障制度。加快发展配售、配租型保障性住房，探索收购存量商品房转为保障房。重点面向引进人才、农牧民转移人口、高校毕业生、退役军人等群体，增加保障性住房供给。优化住房供给方式，健全以周转房、公租房、保障性租赁住房、共有产权房为主体的住房保障体系。试点开展灵活就业人员参加住房公积金制度，按照“缴存有差异、使用广覆盖”原则，优化公积金使用，逐步拓宽提取使用范围。“十五五”期间，力争新增各类保障性住房约6800套，切实改善群众居住条件。
扩大医疗保险覆盖面。推动医保支付方式改革，探索对紧密型县域医共体实行总额付费等模式。优化跨省异地就医直接结算服务，推动医保经办服务下沉至乡镇（街道）。支持更多藏医药纳入国家医保目录。健全重特大疾病保险和救助制度，有效防范因病致贫返贫风险。
提升城乡养老保障水平。发展多层次多支柱养老保险体系，健全城乡居民基本养老保险筹资和待遇调整机制，不断提高基础养老金标准，完善动态调整机关事业单位退休人员待遇相关政策。扩大年金覆盖范围，推行个人养老金制度。鼓励有缴费能力的灵活就业和新就业形态的农业转移人口参加城镇职工养老保险。落实长期护理保险制度。
| 专栏9：公共服务提质扩容工程 |
| 01 就业服务
实施就业服务增效、职业技能提质、劳务品牌培育、创新创业优化“四大工程”，实施“技能照亮前程”培训行动，推动以工代赈，建设基层就业创业公共服务平台、县级公共实训基地。 |
| 02 教育体育
实施市县幼儿园、校园智慧化（信息化）*、学校校园文化建设*、完全小学风雨操场*、乡级小学学生宿舍*、综合楼*，县乡小学整体提升*。县中学操场改扩建*。推动县级幼儿园*、完全小学*、背崩小学*节能改造。推进群众体育基础设施建设。 |
| 03 文化事业
实施新时代林芝文艺精品工程，实施博物馆、非遗馆、藏族服饰保护利用传习所展示陈列、新华书店标准化建设、广播电视传输覆盖、综合文化活动中心提升改造、乡（镇）综合文化站，推动历史传统村落保护提升改造。 |
| 04 医疗卫生
实施国家紧急医学救援基地、藏医院医技综合楼、妇幼保健院能力提升建设、病媒生物实验室、康复医院*，县级疾控中心实验室，县域医共体及普惠托育等项目。 |
| 05 社会保障
实施退役军人褒扬优抚设施、农村幸福院、巴宜区公益性公墓、残疾人服务保障基础设施*项目。实施市县两级周转房、公租房和配套基础设施建设。 |
牢固树立和践行“两山”理念，积极开展“双碳”示范，完善生态文明建设基础制度，构建绿色低碳发展机制，守护好林芝的生灵草木、万水千山，创建国家生态文明高地，建设自然和谐、绿色低碳、宜居宜游的美丽林芝，不断增强绿色发展动能，筑牢国家生态安全屏障。
完善生态保护基础制度。深入贯彻《青藏高原生态保护法》《自治区生态文明高地建设条例》。引进信息化、市场化生态环境保护新方式，推动跨行业、跨地域联合保护。落实“林长制”“河湖长制”，完善自然资源资产管理制度体系，落实林草地征占用、自然保护区设施修筑审批、党政领导干部自然资源资产离任（任中）审计制度。加强国土空间管控、用途管制、规划许可管理。完善自然资源和生态环境管理制度体系，有序推进各类自然资源统一确权登记，建立自然资源资产产权制度，加强自然资源监管和统一调查、评价、监测，深化自然资源有偿使用制度改革。积极稳妥推进集体林权制度改革。完善生态安全工作协调，构建全域联动、立体高效的生态安全防护体系。实施与市场价值同步的野生动物致害动态补偿。深化生态环境保护综合行政执法改革，健全环保信用评价、信息强制性披露、严惩重罚等制度。落实自治区碳达峰“1+N”政策，落实林芝市碳达峰行动实施方案，构建碳排放统计核算体系、产品碳标识认证制度、产品碳足迹管理体系，建立碳源汇监测与评估体系，实施生态环境损害认购碳汇制度，开展碳达峰碳中和综合评价考核，形成资源节约和生态环境保护新机制，如期实现碳达峰碳中和目标。
深化生态产品价值实现机制试点建设。实行生态系统生产总值（GEP）核算，构建生态系统产品价值、调节服务价值、文化价值核算机制。开展生态产品使用权、经营权、收益权确权，开展碳汇资源普查，健全碳汇补偿、交易机制，有序发展碳汇经济，探索碳排放权、用水权、排污权等权益交易。深化生态保护补偿制度改革，探索建立市际横向生态补偿机制，推动大江大河流域跨区域生态补偿在林芝优先试点。强化农牧区生态补偿资金转移支付，建设草畜平衡示范县，完善森林、草原生态补偿制度。积极推进GDP和GEP协同增长评价考核。推进生态岗位绩效考核。
健全山水林田湖草沙一体化保护和系统治理机制。严格保护藏东南高原边缘森林生态功能区，强化森林、草原、河湖、湿地、荒漠生态系统保护和修复，提升生态系统质量和稳定性。实施冰川湿地生态系统保护，加强对冰川、湿地资源开发建设活动源头管控，保持米堆冰川、雅尼湿地等冰川冰雪和湿地资源的原真风貌。完善森林、草原防火设施。建立生态环境分区管控体系，制定实施生态环境准入清单，科学统筹预留重要民生设施、重大基础设施建设廊道、国边防建设空间。科学谋划绿化事业，推进林芝“桃花城”建设，构建“城内观花、城郊连片、全域成景”格局。完善统一的国土空间规划体系，优化“三区三线”划定调整规则，加强生态环境分区管控应用。开展生态保护修复成效评估。科学实施国土绿化，推进重大项目影响区林木资源综合利用，依托林芝国家植物园、“人间桃源”建设，对部分珍稀植物、古树名木等进行保护性移植。
全面推进以国家公园为主体的自然保护地体系建设。实施察隅慈巴沟等国家级自然保护区建设项目，科学推进美丽雅江建设。开展生物资源普查，加强防疫灭菌工作，防治外来物种入侵，保护生物生态安全和生物多样性保护。强化栖息地整体系统保护，加强重点野生动物保护，实施珍稀濒危物种保护恢复，实施极小种群及珍稀濒危野生动植物保护，伯舒拉岭极小种群、珍稀濒危野生动植物、濒危野生植物抢救，野生动物肇事预警防控（试点）基础设施建设。加强生物技术的环境安全监管，强化生物安全防治基础设施建设，加强跨区域、跨境生态安全风险联防联控。持续推动森林病虫害除治。
开展生态保护与科学研究。加强生物多样性保护，建设高原动植物基因库、推动生态文明示范建设。开展地球全谱系生物、世界生物基因、雅鲁藏布自然科学等研究。建立林芝地球科学科考基地，联合知名高校、科研院所，以自然地貌、生态环境、生物多样性、地球物理、气候气象等为重点，建设科学考察、专业实习、毕业实践基地。开展适应高原环境的生态安全屏障重点保护与建设工程、生态环境修复、城镇垃圾处理与资源化利用等技术研发应用，构建生态环境技术服务体系。
优化生态治理机制。建设生态环境治理责任体系、监管体系、市场体系、评估体系。构建天空地一体化生态环境监测网络体系，加强生态安全风险评估、监测预警、舆情管控、应急处置能力建设。完善生态环境和资源保护公益诉讼制度。优化生态环境损害赔偿制度和预防惩戒机制。推广运用政策性森林保险试点成果。
加强生态环境监测和评价。落实主要污染物排放总量控制目标，深化污染减排。建立健全固定污染源排污许可、入河排污口管理等水生态环境管理制度，完善污水处理设施，实现工业园区、城镇污水处理设施安全规范运行，推动工业污染源全面达标排放，加强生活污染源和农牧业污染源治理。加强固体废物和新污染物治理，严控农业面源污染，强化医疗废物、危险废物全过程监管。提升饮用水水源地环境风险防控能力，开展饮用水水源保护区周边区域环境状况和污染风险调查评估，保障饮用水水源地和地下水环境安全。开展重点区域地下水水质监测，深化地下水污染防治。确保主要江河湖泊水质达到或优于Ⅲ类水体比例保持100%。建立新污染物协同治理和环境风险管控体系，推进多污染物协同减排。加强环境信息依法披露。构建环境信用监管体系。完善生态环境综合执法体系。
完善促进绿色低碳发展的政策体系。研究建立碳汇交易体制机制，助力零碳园区建设。强化绿色基础设施建设、绿色低碳产业培育和技术创新，推进生态产业化、产业生态化。推动生态环境分区管控与国土空间规划有效衔接。落实碳排放总量和强度双控制度。提高污水处理效率，推动资源节约集约高效利用，优化资源环境要素市场化配置，构建废弃物循环利用体系，创新完善生活、建筑、固废、危废垃圾处理模式和设施，力争建成“无废城市”，建设运营再生资源绿色分拣中心，布局再生资源网络整合规范回收站点，推进资源节约集约，构建废弃物循环利用。构建支持绿色低碳发展的金融、投资、价格政策体系。加强资源总量管理和全面节约，建立再生资源回收网络，构建资源节约利用体系，激励绿色消费，推动政府加强绿色采购。减少重大战略工程建设过程中产生的废水、废气、废渣等污染，综合利用淹没区范围内的石料、砂石、林木等自然资源，推动弃渣综合利用，促进减量化、再利用、资源化。实施绿色绩效管理考核评价机制。
推动重点领域绿色低碳发展。促进用能替代，推动工业、城乡建设、市政运维、交通运输、能源等重点领域绿色低碳转型，构建绿色低碳循环经济体系。统筹推进工业领域节能降碳行动和重点行业绿色化改造。优化工业领域用能结构，推动数字化智能化绿色化融合，推进工业绿色低碳转型和高质量发展。推进城乡建设绿色低碳转型，推广绿色建筑，推广绿色低碳建材和绿色建造方式，发展装配式建筑，使用再生能源、降低能耗、提高能效。推进城市建筑和农房节能改造。降低城市交通碳排放，优先发展城乡公交，投放共享电动车、自行车，引导公众选择低碳交通方式。推广新能源汽车，推动城乡公共领域车辆电动化替代，开展氢能公交、氢能大巴等应用示范。积极践行绿色生活方式，保护自然生态文化，推动边境地区文化旅游资源家底普查工作。
| 专栏10：美丽林芝建设工程 |
| 01 生态产品价值实现
深化国家生态产品价值实现机制试点建设，建设碳汇林，实施林芝市碳达峰行动。 |
| 02 生态保护修复
开展生态保护修复，实施生物多样性治理与保护提升示范，建设国家植物园、生态环境监测中心配套设施等，开展古树名木、光核桃等进行保护性移植。 |
| 03 环境污染治理
实施县级环境监测站建设项目。 |
| 04 绿色低碳转型
节能改造。建设零碳园区，实施公共机构节能改造、低碳式集中供暖、村级清洁能源建设等项目。 无废城市。建设“无废高原”基础设施，实施生活垃圾转运站、拓展区垃圾转运站、火车站片区垃圾转运站等项目，推进生活、餐厨、建筑垃圾综合处理工程*，实施县城建筑垃圾消纳场，建设县城生活垃圾无害化处理、生活垃圾焚烧设施，建设县域循环经济园区（固废综合处理中心）*、垃圾焚烧厂*、废品收集转运设施*、建筑垃圾处置场及配套设施*，建设乡镇生活垃圾无害化处理设施，建筑垃圾转运站等工程、建设再生资源绿色分拣中心。开展绿色矿山申报。 |
第十四章 坚持和加强党的领导，确保“十五五”规划目标顺利实现
加强组织领导和分工协作，构建定位准确、边界清晰、功能互补、统一衔接的规划体系，健全政策协调和工作协同机制，完善规划实施监测评估机制，确保各项决策部署落到实处。
坚持和健全民主集中制，推进科学决策、民主决策、依法决策，提高各级党委领导经济社会发展的能力水平。落实新时代好干部标准和民族地区干部“四个特别”政治要求，坚持正确用人导向，始终把政治标准放在首位，选优配强各级领导班子。牢固树立和践行正确政绩观，完善干部履职能力培训，强化专业训练和实践锻炼，不断提高应对复杂局面和现代化建设的能力。坚持严管厚爱结合、激励约束并重，引导党员干部担当作为。坚持全面从严治党，坚持大抓基层的鲜明导向，以增强党组织政治功能和组织功能为重点，持续整顿软弱涣散基层党组织，统筹推进各领域基层党组织建设，充分发挥广大党员的先锋模范作用。锲而不舍落实中央八项规定精神，推进作风建设常态化长效化。
按照党的二十届四中全会、自治区党委十届九次全会、市委二届九次全会精神，结合实际科学制定市县两级“十五五”规划纲要和专项规划，形成定位准确、边界清晰、功能互补、统一衔接的规划体系，依法依规推进“十五五”规划纲要全面实施。强化规划刚性约束，专项规划要切实贯彻本规划的战略意图和主要任务，加强约束性指标的衔接，确保各级各类规划在总体要求上指向一致、空间配置上相互协调、时序安排上科学有序。认真分解本规划确定的发展目标、主要任务，明确牵头单位和工作责任，建立部门联动机制。国民经济和社会发展年度计划、财政预算要按照本规划明确的目标和任务，明确年度目标、工作指标和推进措施。改进作风、狠抓落实，提高各级政府的调查研究能力、科学决策能力、改革攻坚能力、应急处突能力、群众工作能力、狠抓落实能力，提高狠抓“四件大事”“四个创建”的政治能力和专业化水平。
全面落实中央宏观调控政策，加强政策引导、项目支撑和资金统筹，确保规划落地。树立正确政绩观，处理好当前和长远的关系，突出产业发展、民生工作、基础设施建设等，谋划一批打基础、利长远、惠民生的重要项目。根据规划提出的目标和任务，加强经济社会发展政策的统筹协调，注重短期政策与长期政策的衔接配合。围绕经济社会发展重点领域，研究制定配套政策。密切联系宏观环境变化和发展实际，加强政策储备。坚持以规划确定项目、以项目落实规划，开辟重点项目建设“绿色通道”，对涉及产业发展、民生福祉等重大项目，优先予以土地保障。强化现场施工服务和后勤、要素保障，严格落实领导包保、专班服务、定期调度等机制，做好关键外围工程和主体工程建设，加强物资保供、参工参建等服务保障。细致做好移民搬迁安置工作，稳妥推进征地拆迁、移民搬迁等工作。科学组织当地群众参工参建，把推进工程建设和促进群众就业增收更好结合起来，持续提升移民群众获得感幸福感安全感。优化财政支出结构和政府投资结构，优先安排涉及民生、公共服务和乡村振兴、城乡融合等领域的财政支出和项目投入。统筹、规范、透明使用财政资金，提高政府投资的引导力和带动力，鼓励社会投资，促进生产要素合理流动。
落实规划目标分工责任制，建立专班跟踪抓落实工作机制，加强规划实施监督评估，切实增强规划实施的系统性、整体性、协同性。用足用好用活中央和自治区支持的特殊优惠政策，主动加强政策对接和项目储备，确保各项政策精准落地、全面见效。健全完善“年度监测分析、中期评估、总体评估”规划评估体系，并依法自觉接受人大监督。健全完善绩效考核机制，将“十五五”规划纲要明确的主要指标和重大战略任务、重大改革举措、重大工程项目纳入综合绩效考核，强化规划实施结果运用。创新评估方式，引入社会机构参与评估，增强规划评估的准确性和广泛性。主动加强与中央有关部委和对口支援单位联系沟通，充分发掘政策潜力，扩展政策容量，放大政策能量，创造政策机遇。激发全社会参与规划实施的积极性，最大限度凝聚全社会共识和力量。加强规划宣传，推进规划实施的信息公开，健全政府与企业、市民的信息沟通和交流机制，提高规划实施的民主化程度和透明度。发挥群众社团、新闻媒体的桥梁和监督作用，促进各级各类规划的有效实施。