In the past decade, China’s many city governments have introduced comprehensive reform measures for transformation and upgrading with their own characteristics. Summarizing these reform experience can provide reference for more cities’ benchmarking development. Taking 42 cities as samples, combined NCA and fsQCA to identify the different configurations of reform measures. Main conclusions :(1) Any single measure cannot play a prominent role alone, which confirms the necessity and positive effects of the city’s comprehensive reform. (2) Comprehensive government reforms, fiscal incentives and planning, science and technology innovation incentives and talent attraction policies are the core support conditions, while local financial regulatory reforms and productive service development reforms need to be greatly strengthened. (3) Three typical paths of high-level are summarized. The research found that the government’s transformation and upgrading is an important prerequisite for the implementation of policy measures, which enriches the essence of “comprehensive reform”.