Shanghai Goes All-In on Autonomous Driving, Set to Open Pudong This Year

Key Points

Pudong Expansion: Shanghai plans to open the entire Pudong New Area to autonomous driving test roads by the end of 2025, a significant step in the city’s self-driving ambitions.
Increased Test Mileage: The city’s total open test road mileage has already exceeded 2,700 kilometers, including areas inside the Inner Ring Road.
“Driver-Free” Permits: New permits now allow companies like Pony.ai, Baidu Apollo, and SAIC Mobility Robotaxi to operate vehicles with a “driver-free in main seat” designation within pilot areas.
Ambitious 2027 Goals: Shanghai’s “Model-Driven Intelligent Mobility Action Plan” aims for over 6 million L4 autonomous driving passenger trips, more than 5,000 km of open roads, and an open area of 2,000 square kilometers by 2027.
Strategic Exclusions: Key financial hubs such as Lujiazui (陆家嘴) in Pudong will not be included in the immediate full-scope opening due to existing heavy traffic.

Key Milestones in Shanghai’s Autonomous Driving Development
Milestone	Details	Target Date/Status
Pudong New Area Opening	Entire Pudong New Area to be opened for autonomous driving test roads.	End of 2025
Total Open Test Road Mileage	Current total open test road mileage, including areas inside the Inner Ring Road.	Exceeded 2,700 km (Current)
“Driver-Free” Permits Issued	Permits allowing operations with no safety driver in the main seat.	Ongoing (since WAIC 2025)
L4 Passenger Trips Target	Target for L4 autonomous driving passenger trips per year.	Over 6 million (by 2027)
Open Roads Target	Target for total open road mileage.	More than 5,000 km (by 2027)
Open Area Target	Target for total open area for autonomous driving.	2,000 sq km (by 2027)

Shanghai is hitting the gas on its autonomous driving ambitions, making a major move that solidifies its place as a global leader in intelligent mobility.

The city plans to open the entire Pudong New Area to autonomous driving test roads before the end of this year.

This massive expansion was announced at the recent 2025 World Artificial Intelligence Conference (WAIC 2025), a hotspot for groundbreaking tech reveals.

The news comes straight from Han Dadong, the Second-level Inspector of the Shanghai Municipal Commission of Economy and Information Technology, confirming the city’s aggressive push into the future of transport.

The Big Announcement: A New Era for Intelligent Vehicles

During an exclusive interview, Han Dadong laid out the plan: Shanghai is steadily expanding its open-road network for self-driving vehicles.

The goal is clear: achieve full coverage of autonomous driving test roads in the Pudong New Area in 2025.

Simultaneously, the city is opening up key areas in the Fengxian and Minhang districts, stitching together a comprehensive testing ground for next-gen mobility.

With this latest push, Shanghai’s total open test road mileage has already rocketed past 2,700 kilometers, even threading into central urban areas inside the Inner Ring Road.

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Who’s Got the Keys? “Driver-Free” Permits are Here

This isn’t just about opening more roads. It’s about leveling up the technology allowed on them.

A new batch of intelligent connected vehicle demonstration operation permits were issued at WAIC 2025, and they’re a game-changer.

For the first time, companies can operate vehicles with the “driver-free in main seat” designation within pilot areas—a huge leap from the previous requirement of having a safety driver behind the wheel.

This move is backed by new legislation, the “Regulations on Promoting Innovation and Application of Driverless Intelligent Connected Vehicles in Pudong New Area,” signaling a shift towards normalized, large-scale commercial operations.

The first wave of companies to get these coveted permits includes some heavy hitters:

Pony.ai (Xiaoma Yixing Keji (Shanghai) 小马易行科技(上海)有限公司)
Baidu Apollo (Baidu Zhixing Keji (Shanghai) 百度智行科技(上海)有限公司)
SAIC Mobility Robotaxi (Saike Intelligent Technology (Shanghai) 赛可智能科技(上海)有限公司)
Shanghai Qiangsheng Taxi (Shanghai Qiangsheng Chuzu Qiche 有限公司)
UISEE (Shanghai Youdao Zhitu Keji 有限公司)

These permits cover both intelligent robotaxis and intelligent freight, opening up two massive commercial frontiers.

Shanghai’s 2027 Roadmap: The “Model-Driven” Future

Shanghai isn’t just thinking about this year. The city dropped its “Model-Driven Intelligent Mobility Action Plan” (Mosu Zhixing Xingdong Jihua 模速智行行动计划), and the targets are ambitious.

By 2027, Shanghai aims to achieve:

Over 6 million L4 autonomous driving passenger trips.
More than 5,000 kilometers of open roads.
An open area of 2,000 square kilometers.
Over 90% of new vehicles sold to be equipped with L2 and L3 functions.

This data-backed plan shows a clear, strategic vision for building a comprehensive ecosystem for intelligent vehicles.

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The Fine Print: What’s In, and What’s Out

While the Pudong expansion is huge, it comes with a strategic exception.

Han Dadong clarified that the full-scope opening of Pudong will not include key financial hubs like Lujiazui (Lujiazui 陆家嘴).

Strategic District Exclusions & Inclusions

Lujiazui: Excluded from full-scope opening due to heavy traffic.
Minhang District: Key areas like Hongqiao Hub to be opened for broader efforts and high-value scenarios.
Fengxian District: Not yet full opening due to less widespread current applications.

Why? The area already suffers from heavy traffic, and adding autonomous test vehicles to the mix isn’t practical right now.

Meanwhile, the expansion into other districts is just as strategic:

Minhang District: Key areas like the Hongqiao Hub will be opened. While Minhang lacks its own autonomous driving industrial base, this move is designed to support the city’s broader efforts, connect crucial test roads, and open up high-value scenarios.

Fengxian District: This area will not see a full opening just yet, as the current applications for autonomous tech are not widespread enough to warrant it.

This phased, calculated approach demonstrates a pragmatic understanding of urban integration.

Shanghai’s strategic rollout is a masterclass for cities globally, proving that the future of autonomous driving depends on smart, incremental, and data-driven planning.