Outline for International Science and Technology Cooperation in Traditional Chinese Medicine (2006—2020)

I. Opportunities and Challenges

(I) Strategic Opportunities
1. Shifting health paradigms are driving growing global demand for traditional medicine.
Driven by economic growth and technological advances, living conditions and environments have transformed significantly. In response, disease patterns, medical approaches, and healthcare models are evolving as society's understanding of health deepens and its pursuit intensifies. The global market for traditional medicine—particularly Traditional Chinese Medicine (TCM)—is expanding rapidly, with trade volumes rising year over year. This surging international demand offers substantial growth opportunities for traditional medicine sectors worldwide.
2. Traditional medicine is receiving significant attention from governments and international organizations worldwide.
Rising healthcare costs worldwide and the limited efficacy of modern medicine against many major refractory diseases have led the international community to recognize that integrating traditional medicine—especially Traditional Chinese Medicine's health concepts and practices—with modern medicine could offer a new model for global healthcare. Countries are increasingly supporting traditional medicine through legal frameworks, standards, and market access policies. According to WHO data, 75 countries have established regulatory bodies for natural medicines, 51 have developed national policies for traditional medicine, 92 have enacted laws and regulations for herbal product registration, 54 have passed laws for traditional practitioner registration, 61 have formed expert committees on traditional medicines, and 58 have at least one research institution dedicated to traditional medicines. The WHO emphasizes that traditional medicine can play a significant role in achieving "health for all."
3. Modern technology provides new support for the development of traditional medicine, such as Traditional Chinese Medicine.
In the 21th century, rapid advances in world science and technology have been driven by frontiers such as life sciences, ecology, information science, complexity science, and systems science. The cross-disciplinary integration of natural and humanities sciences has led to the emergence of new fields.
Advances in modern technology provide methods and tools for major innovations in the fundamental principles, core theories, and key technologies of traditional medicines such as Traditional Chinese Medicine (TCM). Life sciences—including biomedical science—are shifting from reductionist analysis toward holistic integration, re-establishing the value of TCM theory and clinical practice. Effectively leveraging cutting-edge international scientific and technological capabilities to address critical challenges in TCM development will have a significant impact on life sciences and science as a whole. It is foreseeable that TCM and other traditional medicines will become a primary source and foundational platform for major technological innovation.
4. The foundation for international cooperation in traditional Chinese medicine has been established.
Over thousands of years of medical practice, Traditional Chinese Medicine (TCM) has accumulated vast classical medical literature and information resources, containing unique and immense human life science knowledge. It stands as one of the world's major scientific achievements. Since the founding of the People's Republic of China, with continuous economic growth and rising national strength—especially over the past 10 years of TCM modernization initiatives—TCM modernization has garnered strong attention and support from society both domestically and internationally. The level of TCM modernization has significantly improved. Significant progress has been made in basic research, product development, and standardization studies. TCM innovation capabilities have strengthened considerably, resulting in a number of effective, market-leading brands and several promising TCM enterprises. A series of modern TCM bases have been established, creating a substantial modern TCM industry. Today, a comprehensive system for TCM healthcare, research, education, and production is fully operational.
The global reach and impact of Traditional Chinese Medicine (TCM) continue to expand. As of 2005, China has signed government agreements with 70 countries and regions that include TCM cooperation content. Acupuncture has received legal recognition in many countries, while TCM itself has been formally acknowledged and protected by law in nations such as Australia and South Africa. Over the past 5 years, exports of Chinese herbal products have grown steadily, reaching 135 countries and regions; some proprietary Chinese medicines have already secured international drug registration and launched commercially in select markets. The number of international students studying TCM in China remains the highest among all natural science disciplines. TCM's international exchange and cooperation have evolved from spontaneous and fragmented efforts into a structured approach guided by government frameworks, characterized by diverse channels, broad scope, and high-level engagement. This includes collaborative initiatives in TCM education and training, scientific research, medical services, and cultural exchange. Today, TCM healthcare, education, research, and products are progressively gaining full international presence.
In summary, the timing is now ripe to implement the Outline for International Scientific and Technological Cooperation in Traditional Chinese Medicine.

(II) Challenges
1. The scientific essence of traditional Chinese medicine has not yet been widely understood or accepted by modern society.
Due to differences in history, cultural context, and思维方式，Traditional Chinese Medicine (TCM) exhibits distinct characteristics compared to modern medicine. Effective clinical practices such as syndrome differentiation and treatment, along with the principles of herbal processing and formula compatibility, have not yet been properly recognized or applied in modern society. The scientific essence of TCM remains widely misunderstood and unaccepted. Furthermore, the lack of a common language for exchange between TCM, other traditional medicines, and modern medical systems creates significant barriers to international understanding, recognition, and application of TCM.
2. International standard specifications with characteristics of traditional Chinese medicine have not yet been established.
Compared with modern Western medicine and botanical drugs, research on the safety and efficacy of Traditional Chinese Medicine (TCM), along with its evaluation criteria and methods, is more complex. This complexity means that standards for TCM quality control, manufacturing processes, pharmacology and toxicology, clinical evaluation, and product registration cannot simply be adopted from those used for modern Western medicine and botanical drugs. A standard framework reflecting the unique characteristics of TCM and widely accepted by the international community has yet to be established. Consequently, in most countries, TCM lacks legal and regulatory protection and has not yet become a practical and effective health resource for safeguarding human well-being.
3. Advancing modernization in traditional Chinese medicine requires new technologies and methodologies.
Although China's level of modernization in traditional Chinese medicine (TCM) has improved, challenges remain: few new TCM products, low technological content in existing products, and reliance on established varieties for exports have not been resolved. Additionally, TCM products have yet to achieve significant breakthroughs in overseas drug registration. To address these issues and meet the growing demand for TCM, it is essential to mobilize international resources and launch high-level, highly impactful collaborations that tackle key constraints in TCM development. By integrating China's unique advantages in TCM with cutting-edge global technologies, we can provide the technical and methodological support needed to advance the modernization and globalization of TCM.
Given the above challenges, implementing the outline for international scientific and technological cooperation in traditional Chinese medicine is urgently needed.
II. Guiding Principles and Strategic Goals

(I) Guiding Principles
Guide the development of traditional Chinese medicine (TCM) with a scientific outlook on development, following the new-era science and technology policy of "innovative self-reliance, strategic leaps, supporting growth, and leading the future." Uphold guiding principles centered on "originality as the foundation, internationalization as the driving force, human health as the priority, equal emphasis on inheritance and innovation, integration of medicine, industry, academia, and research, and mutual cooperation for shared success." Advance TCM's global outreach to ensure all humanity benefits from its wisdom.
Grounded in originality, we leverage the inherent strengths of traditional Chinese medicine (TCM) to drive its modernization and globalization. By selecting leading TCM technology projects for international collaboration, we aim to advance the development of global standards for traditional medicine.
Drive internationalization. By engaging in global scientific and technological cooperation, fully leveraging worldwide R&D resources, and tackling major challenges hindering the modernization of traditional Chinese medicine (TCM), we will spur innovation in TCM technology. This approach aims to develop a pharmaceutical industry with independent intellectual property rights. Through international collaboration in licensing, certification, standardization, and legal frameworks, we will expand the global reach of TCM. We will advance TCM modernization through internationalization, and further enhance internationalization through TCM modernization.
Human health is our priority. We are committed to promoting public well-being as our core mission, addressing major global diseases through treatment and prevention. By leveraging technological innovation and harnessing the unique strengths of Traditional Chinese Medicine (TCM), we aim to establish a comprehensive preventive care
A health security system centered on prevention and treatment integration, driving global transformation in healthcare models and providing technological support for building a harmonious society and advancing human well-being.
Balancing heritage and innovation. Building on the core principles of traditional Chinese medicine (TCM) theory and clinical practice while adhering to its natural development laws, we leverage modern scientific methods to advance TCM theory. Our dual-track strategy includes: first, preserving the "integration of medicine and pharmacy" tradition by using modern technology to enhance the reliability of traditional diagnosis and treatment, and improving production standards and drug quality through advanced techniques; second, developing innovative drugs based on traditional Chinese medicines by applying biotechnology, modern pharmaceutical research, advanced manufacturing processes, and internationally recognized standards, thereby accelerating the growth of the modern pharmaceutical industry.
Integrate medicine, industry, academia, and research. Adhere to the principles of government guidance, market orientation, enterprise-led development, and interest-based collaboration, leveraging medical services to drive pharmaceutical innovation and using pharmaceutical advances to enhance medical care. Actively encourage the integration model to develop new technologies, products, and equipment; cultivate more TCM professionals; and jointly promote the global expansion of Traditional Chinese Medicine.
Mutual benefit and shared success. Leveraging the unique characteristics of countries worldwide and market demands, we will strengthen the protection of traditional Chinese medicine (TCM) intellectual property rights while respecting and safeguarding the economic interests and IP rights of all parties involved in international cooperation. Through reciprocity and collaboration, we aim to share the achievements of TCM civilization with the world.

(II) Objectives
The overarching goal of the Outline for International Scientific and Technological Cooperation in Traditional Chinese Medicine (TCM) is to leverage modern scientific and humanistic achievements to foster the integration, innovation, and advancement of TCM theory with contemporary science. This aims to deepen understanding of TCM's scientific essence and enrich its theoretical framework. Additionally, it seeks to enhance TCM's competitiveness in the global market, facilitating its entry into mainstream international healthcare sectors. Furthermore, it intends to promote medical rehabilitation and wellness concepts rooted in modern humanism and traditional Chinese culture globally, widely disseminate TCM culture, and contribute TCM to the health and well-being of humanity worldwide.
A preliminary international network for TCM scientific and technological cooperation has been established, significantly enhancing TCM innovation capabilities. Key achievements include: the establishment of 5–10 internationally influential clinical research centers, joint laboratories, and R&D centers; completion of 100 projects on clinical efficacy evaluation, mechanism of action, effective prevention and treatment methods, and new drug development in collaboration with international partners; execution of multicenter clinical trials for 10 Chinese medicine products with market potential abroad; and the formation of diverse academic exchange programs with 50 leading international medical institutions, universities, research organizations, and production enterprises. Annual authorization of TCM invention patents and citations of international scientific publications now rank among the top globally in traditional medicine. A high-caliber team of internationally oriented TCM professionals has been attracted, trained, and consolidated, laying the foundation for several internationally collaborative research bases and teams with strong innovation capacity.
The international competitiveness of traditional Chinese medicine (TCM) products has strengthened, with significant progress in entering mainstream global pharmaceutical and health markets. We aim to cultivate a group of globally competitive multinational TCM enterprise groups and establish concentrated hubs for export-oriented TCM enterprises. Additionally, we will build large-scale TCM R&D, production (cultivation), and sales groups abroad.
Introduce, digest, absorb, and integrate key technologies required for Chinese medicine (TCM) manufacturing; upgrade a batch of TCM production enterprises; establish modern TCM production technologies and methods with distinct characteristics that are internationally recognized. Develop and launch a range of TCM products into mainstream healthcare markets in developed countries; significantly increase TCM's market share in developing countries' pharmaceutical sectors; and enhance the global market presence of TCM products.
A foundational set of international standards for traditional Chinese medicine (TCM) has been established, and a preliminary regional registration coordination system is in place. Internationally accepted and recognized TCM standards and specifications, along with multilingual interpretation guidelines, have been developed. These standards are tailored to the unique characteristics of TCM and the specific conditions of each country or region, supporting clinical practice, education, research, and production across disease diagnosis, treatment methods, efficacy evaluation, and quality control. A regional international traditional medicine registration coordination system based on TCM standards and specifications has also been formed.
— TCM culture is promoted. Publish 1–2 internationally influential TCM academic journals; establish more than 5 multilingual regional centers for international TCM information, including an International Information Center for Traditional Medicine in China; create major international regional centers for TCM education and training and demonstrate comprehensive TCM hospitals, with 5–10 each; complete the translation and compilation of TCM textbooks, classical medical texts, and modern research outcomes for international TCM medical care, education, and promotion.
III. Key Areas and Major Tasks

(I) International Scientific Cooperation Research on Prevention and Treatment of Major Difficult Diseases by Traditional Chinese Medicine
Focus on common, prevalent, and major complex diseases that are urgently needed by the global community. Utilize modern multidisciplinary methods and technologies—such as clinical epidemiology, evidence-based medicine, and information technology—to conduct foundational and clinical research on diagnosis criteria, treatment protocols, and evaluation standards for Traditional Chinese Medicine (TCM). Promote proven, effective outcomes.
Primary research on prevention and treatment of major chronic diseases (including neuropsychiatric, cardiovascular and cerebrovascular, autoimmune, metabolic, digestive, and psychosomatic disorders) as well as major infectious diseases (such as hepatitis and AIDS); studies on syndrome diagnosis and efficacy evaluation; research on syndrome information identification and processing; development of TCM syndrome diagnostic systems and clinical data analysis systems.

(II) Research on the Role of Traditional Chinese Medicine in Disease Prevention and Health Preservation
Based on a comprehensive review and exploration of Traditional Chinese Medicine (TCM) methods and technologies for disease prevention and wellness, this initiative addresses the unique healthcare needs of populations worldwide. Leveraging modern scientific advancements, it investigates TCM's mechanisms and effectiveness in preventing chronic diseases and suboptimal health states. The goal is to continuously elevate TCM's preventive and wellness capabilities, meeting the growing health demands of modern society.
Key tasks include researching preventive and health-promoting theories and methods such as acupuncture, massage therapy, dietary therapy, and qigong; and promoting effective, simple, and accessible prevention and wellness practices internationally.

(3) Develop a range of TCM products tailored to international market demands and cultivate TCM enterprises with global competitiveness.
Leveraging millennia of accumulated TCM resources and integrating modern scientific technologies, we will develop new Chinese medicines and conduct re-evaluation and secondary development of existing TCM products across diverse global markets. Our goal is to create a portfolio of TCM products tailored to international demand, cultivate globally competitive multinational TCM enterprises, expand TCM's share in the global health and wellness market, and transform China's TCM knowledge and resource advantages into tangible economic growth.
Core Mission: Develop and manufacture new Chinese medicines with proven efficacy, established quality standards, safety, and strong intellectual property rights for registration and commercialization in developed countries as pharmaceutical products; develop and produce new drugs and health supplements based on pharmacologically active Chinese herbal extracts and their formulations; conduct modern research on traditional Chinese medicine (TCM) formulas; and re-evaluate and further develop existing premium TCM products to enhance their intrinsic quality, clinical efficacy, and safety.

(IV) Development and Application of Key Technical Methods in Traditional Chinese Medicine R&D and Manufacturing
Leverage the rich experience and vast information resources of traditional Chinese medicine (TCM), combined with modern scientific technologies such as biology, chemistry, computer science, and informatics, to develop R&D techniques and methodologies specific to TCM. Address the long supply chain, complex composition, challenging quality control, and intricate production processes of Chinese medicines by effectively introducing, assimilating, and integrating advanced international technologies and equipment. Establish a pharmaceutical R&D and production system uniquely tailored to TCM.
Key objectives: Develop new technologies and methods for efficacy evaluation, screening, quality control, and safety assessment tailored to the complex nature of traditional Chinese medicine (TCM); establish a novel drug development model integrating TCM empirical knowledge with advanced modern technologies, particularly discovery and evaluation approaches suited to compound formulations; develop planting, extraction, separation, and formulation technologies optimized for TCM products; implement online quality detection and control systems for production processes; and engineer specialized equipment designed for TCM manufacturing.

(V) Inheritance and Protection of Traditional Chinese Medicine
Leverage international resources to research methods and technologies for the effective inheritance of Traditional Chinese Medicine (TCM). Fully utilize modern biotechnology and information technology to ensure the rational application and sustainable development of TCM resources during their globalization. Establish intellectual property protection mechanisms tailored to TCM characteristics, focusing on safeguarding China's TCM germplasm resources and protecting China's unique TCM products, methods, and technologies worldwide.
Core missions: Unearthing and inheriting human health information and effective prevention/treatment methods embedded in Traditional Chinese Medicine (TCM), with a focus on the experiences of renowned TCM practitioners; organizing and preserving important historical and contemporary documents; introducing and domesticating medicinal resources globally; national...
Establishment of medicinal plant germplasm resource banks, botanical gardens for medicinal plants, and dynamic monitoring and early warning systems; creation of an intellectual property protection system tailored to the characteristics of traditional Chinese medicine.

(VI) Formulate and establish international standards for traditional Chinese medicine
Building on existing TCM standards and referencing international pharmaceutical guidelines, establish TCM-specific standard frameworks that adapt to regional characteristics and socio-economic development levels worldwide. This will progressively form an international traditional medicine registration coordination system grounded in TCM standards.
Core tasks: quality control, production (cultivation), pharmacology, toxicology, clinical diagnosis, efficacy evaluation, registration, sales, and regulatory standards for traditional Chinese medicine; bilingual terminology translation and interpretation standards with English as the primary language; establishment of a regional international coordination system for traditional medicine registration.

(VII) Build an international network for scientific and technological cooperation in traditional Chinese medicine
Based on the needs of TCM research, leverage key projects as collaborative platforms to establish an international TCM cooperation network through diverse channels with influential universities, research institutions, hospitals, and manufacturers worldwide. Aligning with the interests of governments and scientific communities in different countries and regions, conduct international collaborative research across clinical, experimental, and theoretical dimensions. This approach aims to foster a shared language for mutual exchange among TCM, other traditional medicines, and modern medicine, fundamentally overcoming cultural barriers that hinder global understanding, recognition, and application of TCM.
Core tasks: Establish bilateral or multilateral TCM clinical research centers, joint laboratories, R&D and production hubs, safety evaluation centers, multi-language (e.g., Chinese-English and other languages) databases for TCM healthcare, research, education, management, and market intelligence, as well as a global database on traditional medicine laws and regulations.

(VIII) Promote the International Dissemination of Traditional Chinese Medicine
Internationalization of traditional Chinese medicine (TCM) is an effective vehicle for spreading Chinese culture. By accounting for the unique characteristics of countries worldwide, we should establish a multi-channel, multi-level, and multi-modal international communication system for TCM to showcase its development achievements and outcomes. This will promote the broader global reach of TCM and contribute to human health.
Core mission: Deliver TCM education and medical services abroad; strengthen public outreach and cultural promotion of TCM; publish TCM research in internationally recognized academic journals; promote appropriate TCM technologies and products; support exchanges and collaborations between domestic TCM academic organizations and traditional medicine counterparts worldwide.
IV. Implementation Measures

(I) Establish the organizational body for implementing the planning guidelines
Establish the International Science and Technology Cooperation Leadership Group on Traditional Chinese Medicine (TCM). The Ministry of Science and Technology serves as the lead agency, with the Ministry of Health and the State Administration of Traditional Chinese Medicine as co-leads. Additional relevant departments will be invited to participate based on work requirements. The group will make decisions on major issues in implementing the Action Outline and provide guidance and coordination for TCM international science and technology cooperation efforts across ministries and provinces/cities.
Establish an International Expert Committee. Recruit renowned experts in traditional Chinese medicine (TCM) and related fields globally to form the TCM International Science and Technology Cooperation Plan Expert Committee, which will provide unified coordination of key areas and implementation plans for the TCM international science and technology cooperation initiative.
Establish an International Council. The Ministry of Science and Technology will lead coordination with relevant national governments and international organizations to implement the "Outline Plan for International Scientific and Technological Cooperation in Traditional Chinese Medicine." An International Council shall be established to launch a multilateral cooperation mechanism based on existing bilateral TCM cooperation.
Launch the initiative by conducting international research on the efficacy mechanisms of a batch of leading domestic Chinese patent medicines. Establish a coordination and collaboration mechanism involving relevant national authorities and local entities, linked through this initiative.

(II) Ensure Funding Sources
Leverage existing funds. Based on the Ministry of Science and Technology's current international science and technology cooperation budget, coordinate and consolidate internal funds to support the implementation of TCM international science and technology cooperation projects. The Ministry of Health and the State Administration of Traditional Chinese Medicine will provide further support for these projects.
Apply for special funds. Proactively seek special funding from the Ministry of Finance to support the "Outline Plan for International Scientific and Technological Cooperation in Traditional Chinese Medicine."
Mobilize funding from local governments and the broader society. Through policy guidance, project investments, and establishing international TCM science and technology cooperation bases, direct capital from local entities and enterprises toward international TCM collaboration, creating a diversified, multi-channel investment framework to support the global expansion of traditional Chinese medicine.
Attract international capital. Leverage bilateral and multilateral agreements between Chinese and foreign governments and international organizations to jointly prioritize traditional Chinese medicine (TCM) international science and technology cooperation projects. Use these projects to draw in funding from the global community, particularly dedicated research funds for traditional medicine established by developed countries, and advance TCM international research initiatives. Support domestic TCM companies in listing overseas to effectively tap into foreign capital markets. Prioritize attracting investment from influential multinational enterprises active in the global pharmaceutical sector to collaborate on TCM international science and technology projects.

(III) Formulate policies to promote international scientific and technological cooperation in traditional Chinese medicine
Strengthen cross-departmental coordination, alignment, and support for policies. Expedite the formulation of specific implementation measures to advance the "Outline of the National Medium- and Long-Term Program for Science and Technology Development (2006—2020)" and the State Council's "Several Supporting Policies for Implementing the Outline of the National Medium- and Long-Term Program for Science and Technology Development (2006—2020)." Focus on science and technology, national drug, intellectual property, fiscal and tax, and foreign trade policies to enhance policy incentives and safeguards for the internationalization of traditional Chinese medicine (TCM). Improve the system for promoting and protecting overseas investments to guide the TCM industry in going global. Actively advocate including the TCM industry in negotiations on international trade liberalization and facilitation. Through bilateral and multilateral government cooperation, further strengthen dialogue and collaboration on traditional medicine policies and regulations internationally to create a favorable external environment for the internationalization of TCM.

(IV) Implement High-Level Strategy
The high-level strategy encompasses government-to-government engagement, collaboration among top-tier TCM research and educational institutions and experts, and the international market entry of traditional medicine products with high technological content.
High-level engagement between governments and international organizations plays a pivotal role in advancing traditional medicine into the global mainstream healthcare market. By strengthening dialogue between government officials and expanding cooperation with governments worldwide on policies, regulations, market access, and oversight related to traditional medicine, we can bolster partnerships with key international bodies such as the World Health Organization (WHO) and the World Trade Organization (WTO). Leveraging national and governmental support will provide a robust foundation for integrating traditional medicine into the global healthcare ecosystem.
Support all sectors of society to engage in traditional medicine cooperation with high-level medical, educational, R&D, and production institutions, as well as academic groups, through bilateral or multilateral channels under government agreements.
Tailor high-quality traditional medicine services and products to the unique characteristics of different countries and regions, as well as the specific needs of various target audiences. Enhance global understanding of the proven efficacy of traditional medicines—such as Traditional Chinese Medicine—in preventing and treating difficult and complex diseases, and promote their acceptance and use worldwide.

(5) Establish Regional Research Teams
Based on TCM research needs and the priorities of governments and scientific communities across different countries and regions, an expert committee will select appropriate collaboration models to establish targeted international cooperation projects and regional research teams. These teams will be supported in leveraging their expertise to study regional characteristics worldwide and explore pathways for integrating TCM into the global mainstream healthcare market, thereby driving innovation.
1. North America, Europe, and Australia
The United States, Canada, and Europe possess advanced scientific technologies and cutting-edge instrumentation, including in the life sciences. They host outstanding teams of scientists in modern science fields with robust funding for basic research. Cooperation can be strengthened through joint applications for government-funded projects (both domestic and international) and by importing technology and talent funded by China. Key focus areas include basic TCM research, breakthroughs in elucidating the scientific essence of TCM, establishing efficacy evaluation standards, and developing methodologies for Chinese medicine R&D. Capitalizing on the EU's current development of a traditional herbal medicines list, we will collaborate to jointly study and recommend a Chinese medicinal herbs list.
2. Hong Kong, Macau, Northeast Asia, and Southeast Asia
This region has deep roots in traditional Chinese culture, with high acceptance of traditional Chinese medicine (TCM), particularly TCM compound products. We should prioritize TCM compound products to establish international scientific and technological cooperation projects, develop regional TCM standards, and strive to have these standards incorporated into the national drug registration requirements of the host country.
3. South Asia, Middle East/Gulf, Latin America, and Africa
This region has a rich history of traditional medicine and places high importance on registration standards, though its R&D capabilities are limited. By partnering with leading local universities and research institutions and securing support from both governments, we can establish joint laboratories to collaboratively develop traditional medicine standards. Through international cooperation, this will help create a national regulatory framework for traditional medicine that reflects the unique characteristics of Chinese medicine.