Hainan’s “15th Five-Year Plan” for the International Tourism Consumption Centre: The Post-Closure Playbook

2026-08-28 海南自贸港封关

  • On 13 August 2026 Hainan’s provincial government briefed the media on the “15th Five-Year Plan” for the Hainan International Tourism Consumption Centre, adopted by the provincial government on 8 June and officially issued on 28 June 2026.
    2026 年 8 月 13 日，海南省政府就《”十五五”海南国际旅游消费中心规划》举行新闻发布会——该规划 2026 年 6 月 8 日经省政府常务会议审议通过、6 月 28 日正式印发实施。
  • The Plan adopts a “13526” framework: one world-class international tourism-consumption centre goal, three signature consumption cards, five high-quality tourism destinations, two core engines (Haikou and Sanya) and six characteristic industrial function zones.
    规划提出”13526″总体框架：锚定 1 个世界级国际旅游消费中心总目标、打造 3 张特色消费名片、构建 5 大高品质旅游目的地、强化海口三亚两大城市双核驱动、统筹布局 6 大特色产业功能片区。
  • By the end of the “15th Five-Year” period, Hainan targets 154 million domestic and foreign visitors, RMB 363 billion in total visitor spending, 3.5 million inbound visitors, more than 120 inbound passenger routes, over 60 overseas destination cities, and a top-3 global ranking among non-archipelagic island tourism destinations.
    到”十五五”末，海南目标：接待国内外游客 1.54 亿人次、游客总花费 3630 亿元、接待入境游客 350 万人次、入境客运航线超 120 条、境外通航城市超 60 个、全球非群岛国海岛旅游目的地竞争力排名进入前 3 位。
  • Three consumption articles anchor the plan: duty-free shopping (building a “duty-free plus island-resident duty-free plus cross-border e-commerce” supply structure), international medical tourism (“traditional Chinese medicine plus international medical care”) and international education (the “study in Hainan” brand).
    三篇消费文章锚定规划：免税购物（构建”离岛免税+岛内居民日消品免税+跨境电商”供给格局）、国际医疗（推广”中医药+国际医疗”模式）与国际教育（擦亮”留学海南”品牌）。
  • For foreign investors, the Plan signals sustained opening: more international brands and first stores, a duty-free operation centre and distribution hubs, marine and cruise tourism development, and inbound-facilitation improvements such as multilingual guidance, foreign-card acceptance and mobile payment.
    对外国投资者，规划传递持续开放信号：吸引国际品牌与首店首发、招引国际高端品牌免税运营中心与分销中心、发展海洋与邮轮旅游，并完善多语种指引、外卡受理、移动支付等入境便利举措。

Hainan’s “15th Five-Year Plan” for the International Tourism Consumption Centre: The Post-Closure Playbook | 海南”十五五”国际旅游消费中心规划：封关后的施工图

The Plan and its timing

On 13 August 2026 the Hainan provincial government held the tenth press conference of its “15th Five-Year” opening series to brief the public on the “15th Five-Year Plan” for the Hainan International Tourism Consumption Centre (the “Plan”). The Plan was adopted by the provincial government’s standing committee on 8 June 2026 and officially issued on 28 June 2026. Its context is the full island-wide customs closure: with Hainan’s FTP now fully operational, the Plan is the sector roadmap for converting the closure dividend into tourism-led consumption. It also sits beneath the national Tourism Powerhouse “15th Five-Year Plan” issued by the Ministry of Culture and Tourism with State Council approval, which gives Hainan explicit tasks in ocean and island tourism, cruise tourism and the inbound-tourism backbone network.

The “13526” framework

The Plan’s organising device is the “13526” framework: one overall goal — a world-class international tourism consumption centre; three signature consumption cards; five high-quality tourism destinations; two core engines, Haikou and Sanya; and six characteristic industrial function zones. Around “international, tourism, consumption” it sets 6 first-level and 16 second-level indicators. Headline targets by 2030: 154 million domestic and foreign visitors, RMB 363 billion in total visitor spending, 3.5 million inbound visitors, more than 120 inbound passenger air routes, more than 60 overseas destination cities, and a top-3 global ranking among non-archipelagic island tourism destinations. The “14th Five-Year” base is strong: over the past five years duty-free shopping reached RMB 189.45 billion in cumulative sales, with 12 duty-free shops and six operators, and the island already hosts the world’s largest duty-free single store.

The three consumption articles

The Plan organises consumption around three pillars. Duty-free shopping: Hainan will seek more open and convenient offshore duty-free policies and build a “duty-free plus island-resident daily-consumption duty-free plus cross-border e-commerce” supply structure, upgrading from “buy in Hainan” to “buy the world”. International medical tourism: promote the “traditional Chinese medicine plus international medical care” model and build the “come to Hainan, enjoy health” brand. International education: deepen the “five mutuals, one common” model (mutual exchange, mutual integration of disciplines, interconnection of arts and sciences, mutual credit recognition, mutual course selection and co-governance) and keep polishing the “study in Hainan” brand. These three pillars map directly onto the consumption scenarios where foreign investors — duty-free operators, medical-service providers and education institutions — have the clearest entry points.

Five destinations, two engines, inbound facilitation

The Plan also details supply-side investment. Five high-quality destinations will be built: an international consumption-fashion leader (first stores, launches, shows and exhibitions — the “four firsts” economy); an ocean-culture and tourism destination (island tourism routes, cruise lines to GBA cities, yacht-plus products, and the orderly development of uninhabited islands, plus 20 public natural beach bathing areas, three surfing bases, five diving bases and seven angling bases); an integrated mountain-sea destination; a functional tourism carrier; and a tech-tourism experience destination (aerospace, deep-sea, seed industry and digital tourism, including the Hainan Aerospace Museum and Wenchang aerospace tourism centre). Haikou anchors three roles — international performing-arts capital, regional convention centre and duty-free shopping hub — while Sanya targets at least 50 million visitors and 2.5 million inbound visitors annually by 2030. Inbound facilitation is a running theme: multilingual guidance, foreign-card acceptance, mobile payment, more international routes and overseas marketing in North America and Europe.

What foreign investors should watch

For foreign investors, the Plan is best read as a sector-by-sector invitation. Duty-free and retail: the ambition to host international duty-free operation centres, distribution hubs, first stores and first launches creates partnership and licensing opportunities; note the complementary “duty-free plus” push with medical, education and cultural tourism. Medical tourism: the TCM-plus-international-care brand, combined with the existing medical-tourism and international-medical pilots, points to clinic and wellness-investment openings. Tourism infrastructure: marine tourism, cruise, yacht bases and smart tourism offer project-level entry points, often through public-private structures with provincial entities. Inbound services: payment, translation and travel-tech services that support the 3.5-million-inbound-visitor target are a services opportunity in their own right. Investors should also track the sector’s performance data — duty-free sales rose 20.5% year on year to RMB 20.34 billion in H1 2026 — as the Plan’s execution will be measured against them.

Sources

海南”十五五”国际旅游消费中心规划：封关后的施工图

规划与时间点

2026 年 8 月 13 日，海南省人民政府举行”开局起步’十五五'”系列主题新闻发布会第十场，解读《”十五五”海南国际旅游消费中心规划》（下称《规划》）。《规划》2026 年 6 月 8 日经省政府常务会议审议通过、6 月 28 日正式印发实施。其背景是全岛封关运作全面落地：自贸港进入高水平制度型开放新阶段，《规划》是把封关红利转化为旅游引领型消费的行业路线图。它同时承接经国务院批复同意、文化和旅游部印发的《旅游强国建设”十五五”规划》，后者在海洋海岛旅游、邮轮旅游与入境旅游主干网络布局中赋予海南明确任务。

“13526”框架

《规划》以”13526″总体框架为组织工具：锚定 1 个世界级国际旅游消费中心总目标；打造 3 张特色消费名片；构建 5 大高品质旅游目的地；强化海口、三亚两大城市双核驱动；统筹布局 6 大特色产业功能片区。围绕”国际””旅游””消费”三大维度设置 6 个一级、16 个二级指标。到 2030 年的核心目标：接待国内外游客 1.54 亿人次、游客总花费 3630 亿元、入境游客 350 万人次、入境客运航线超 120 条、境外通航城市超 60 个、全球非群岛国海岛旅游目的地竞争力排名进入前 3 位。”十四五”基础扎实：过去五年离岛免税购物金额累计 1894.5 亿元，全岛形成 6 家经营主体、12 家离岛免税店的有序竞争格局，并建成全球最大的免税单体。

三篇消费文章

《规划》围绕三个支柱组织消费。免税购物：争取更加开放便利的离岛免税政策，构建”离岛免税+岛内居民日消品免税+跨境电商”供给格局，推动”海南购”向”购全球”升级。国际医疗：推广”中医药+国际医疗”模式，塑造”到海南、享健康”品牌。国际教育：深化”五互一共”办学模式（中外互鉴、学科互融、文理互通、学分互认、课程互选、管理共商），擦亮”留学海南”品牌。三大支柱直接对应外资投资者——免税运营商、医疗服务提供者与教育机构——进入最清晰的场景。

五大目的地、双核与入境便利

《规划》还细化供给端投资。将构建五大高品质旅游目的地：国际消费时尚引领地（发展首店、首发、首秀、首展”四首经济”）；海洋特色文化和旅游目的地（环岛旅游航线、至粤港澳等城市邮轮线路、”游艇+”产品、有序推进无居民海岛开发利用，以及 20 个公共天然沙滩浴场、3 大冲浪基地、5 大潜水基地、7 大海钓基地）；山海联动全域旅游实践地；独特功能性旅游承载地；旅游科技深度体验地（航天、深海、种业、数字科技旅游，含海南航天博物馆与文昌航天旅游中心）。海口锚定”国际演艺之都、区域性国际会展中心、免税购物高地”三大定位；三亚力争 2030 年年接待游客不低于 5000 万人次、入境游客 250 万人次。入境便利是贯穿性主题：多语种导览、外卡受理、移动支付、加密国际航线，并在北美、欧洲重点客源市场推广。

外国投资者应关注什么

对外国投资者，《规划》宜按行业逐项读作邀请函。免税与零售：打造国际高端品牌免税运营中心、分销中心、首店首发的雄心创造合作与授权机会；注意”免税+”与医疗、教育、文旅联动。医疗旅游：”中医药+国际医疗”品牌叠加既有医疗旅游与国际医疗试点，指向诊所与康养投资空间。旅游基建：海洋旅游、邮轮、游艇基地与智慧旅游提供项目级入口，常以与省级主体的公私合作结构展开。入境服务：支撑 350 万人次入境目标的支付、翻译与旅行科技服务本身就是服务机会。投资者还应跟踪行业运行数据——2026 年上半年离岛免税销售金额 203.4 亿元、同比增长 20.5%——《规划》执行将以其为标尺。

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