All posts by adm0n

FTZ Setup / 自贸区落地

Comprehensive Bonded Zones Get a 2026 Upgrade: 24 Measures for “Capacity and Quality”

  • On 14 April 2026 the State Council approved, and the General Office forwarded, the General Administration of Customs’ “Several Measures for Promoting the Capacity and Quality Upgrade of Comprehensive Bonded Zones” (国办函〔2026〕40号) — 24 reform measures, the first such top-level document since 2019.
    2026年4月14日，国务院同意、办公厅转发海关总署《关于促进综合保税区扩能提质的若干措施》（国办函〔2026〕40号）——24项改革措施，是2019年以来国家再次出台的支持综保区发展顶层设计文件。
  • China now runs 168 comprehensive bonded zones across all 31 provincial regions; in 2025 they handled RMB 7.2 trillion in import-export value (about 16% of the national total), rising 27.1% in the first five months of 2026.
    中国现运行168个综合保税区，覆盖全部31个省份；2025年实现进出口7.2万亿元（约占全国16%），2026年前5个月达3.5万亿元、同比增长27.1%。
  • The measures follow a “four transitions, four upgrades” logic — from processing/logistics to high-end “bonded+” services, from trade-led to strategy-led, from “two-ends-out” to dual circulation, and from fence management to smart supervision.
    措施遵循”四转四提升”逻辑——从加工物流转向高端”保税+”服务、从贸易导向转向战略导向、从”两头在外”转向双循环、从围网管理转向智慧监管。
  • Bonded repair moves from a 276-item positive list toward a negative-list exploration, broadening repairable products and allowing repaired goods to flow on and, step-by-step, to domestic sale.
    保税维修由276类正面清单转向探索负面清单，扩大可修产品范围，并允许维修成品继续加工后离境出口、分步推进转内销。
  • Cross-border financial-leasing remote supervision expands from 3 equipment types (aircraft, ships, offshore structures) to all major technical equipment that cannot physically enter the zone.
    融资租赁异地委托监管由3类设备（飞机、船舶、海洋工程结构物）扩展至所有无法实际入区的重大技术装备及其零配件。
  • For foreign manufacturers, a CBZ remains the fastest route to bonded imports, in-zone processing, re-export and now extended “bonded+” services with lighter compliance.
    对外国制造商而言，综保区仍是保税进口、区内加工、复出口以及如今更轻合规的扩展型”保税+”服务的最快路径。

Comprehensive Bonded Zones Get a 2026 Upgrade: 24 Measures for “Capacity and Quality” | 综合保税区2026升级：扩能提质的24项措施

A new top-level blueprint for CBZs

On 14 April 2026, with State Council approval, the General Office forwarded the General Administration of Customs’ (GACC) *Several Measures for Promoting the Capacity and Quality Upgrade of Comprehensive Bonded Zones* (国办函〔2026〕40号), unveiling 24 reform measures. This is the first “top-level design” document supporting comprehensive bonded zones (CBZs, 综合保税区) since the State Council’s January 2019 *Opinions on Promoting High-Level Opening and High-Quality Development of CBZs* (国发〔2019〕3号). GACC held a press conference on 27 April 2026 to explain it.

The timing is deliberate: 2026 marks the 20th anniversary of China’s CBZ programme. CBZs are the highest-openness, most convenient and most preferential of the customs special supervision areas (海关特殊监管区域), and they have become a core platform for foreign trade. The 2026 document is explicitly a response to a changing global trade pattern and the need to support the “dual circulation” strategy — shifting CBZs from pure export processing toward serving both domestic and international markets.

The scale and why it matters

The numbers explain the policy attention. China now operates 168 CBZs covering all 31 provincial-level regions. In 2025, the zones achieved import-export value of RMB 7.2 trillion, accounting for about 16% of the national total; in the first five months of 2026 alone they reached RMB 3.5 trillion, up 27.1% year-on-year and about 16.9% of national trade. In GACC’s own phrase, CBZs contribute roughly one-sixth of national foreign-trade value on about one fifty-thousandth of the country’s land area. For any foreign manufacturer or trader, a CBZ is therefore not a niche instrument but a mainstream channel.

The “four transitions, four upgrades”

The 24 measures are organised around a “four transitions, four upgrades” (四转四提升) framework:

  1. Industry form: from traditional processing and logistics toward diversified, high-end integration of production and services — boosting “bonded+” (保税+) new forms such as bonded repair, bonded testing, remanufacturing, cross-border e-commerce and bonded training (7 measures).
  2. Function: from a trade-led orientation toward serving national strategic needs — supporting major technical-equipment supply chains through remote supervision, optimising key-commodity management and differentiated conformity assessment (4 measures).
  3. Development model: from the traditional “two-ends-out” (两头在外) toward serving the domestic-international dual circulation — linking CBZs with ports, supporting export-to-domestic conversion, simplifying equipment out-zone procedures and optimising cross-border settlement (7 measures).
  4. Supervision: from fence-based control toward digital, collaborative smart supervision — building smart supervision systems,全生命周期 management, and a comprehensive service platform (6 measures).

Bonded repair: positive list to negative list

A flagship change is in bonded repair (保税维修). Until now, repairable products followed a positive list — four batches covering 276 product categories. The 2026 measures explore a shift to a negative-list approach, which materially widens the scope. They also broaden the downstream flow: repaired goods may continue to be processed in-zone and exported, and — step by step — be sold domestically; and domestically manufactured export products may enter a CBZ from abroad for repair and re-export without being constrained by the repair catalogue or the prohibited-imported-used-machinery catalogue. In 2025, CBZ repair import-export value reached RMB 375.73 billion, up 3.2%. For foreign high-end-equipment and electronics firms, this opens a credible China-based MRO and after-sales footprint.

Financial leasing and remote supervision

Another concrete easing targets cross-border financial leasing. The earlier remote-supervision measure covered only three equipment types — aircraft, ships and offshore engineering structures — letting leased goods bypass physical entry into the zone. The 2026 measures extend this to all major technical equipment and parts that cannot practically enter the zone, and build a coordinated mechanism for aircraft and aero-engines to complete production, test-flight and delivery entirely in bonded status. Tianjin Dongjiang CBZ — already China’s largest and the world’s second-largest aircraft-leasing cluster — imported 243 aircraft via bonded leasing in 2025, worth RMB 86.76 billion (up 28.7%). The expansion signals a wider opening for capital-equipment leasing.

Biomedical R&D and logistics linkage

The measures also help biomedical firms. Rather than forcing R&D into the zone, GACC will pilot granting qualified outside-the-zone biomedical R&D enterprises a CBZ customs registration code, so they can share the zone’s bonded-R&D benefits — a “let the policy go out” approach. On logistics, the document supports aviation forward stations inside CBZs and supporting facilities for China–Europe freight-train assembly centres, building a “corridor + hub + industry” pattern. In 2025, China–Europe trains (Xi’an) assembled through Xi’an CBZ reached 140,000 TEU (1,709 trains, up 21.2%), with cargo value of RMB 33.65 billion (up 10.8%), about 46.1% of the train’s import-export total.

Smart supervision rounds it out: AI, IoT, digital twins and blockchain are to be applied; “internet + audit” and “self-inventory + self-tax” models are piloted to let “data run, not enterprises”.

What foreign firms should do

  • If you import, process and re-export, locate the operation in a CBZ to suspend duties and avoid VAT on bonded inputs.
  • For repair/after-sales of high-value equipment, assess the move from the 276-item positive list toward a negative-list regime — far more products will qualify.
  • For capital-equipment leasing into China, use the expanded remote-supervision route to avoid physical in-zone handling.
  • Biomedical R&D groups should explore the outside-the-zone registration-code pilot to capture bonded-R&D savings without relocating labs.
  • Model domestic-sale conversions (出口转内销) under the eased licence and customs-clearance rules to serve the China market directly from the zone.
  • Engage the CBZ’s smart-supervision channel early — compliant, data-driven firms get faster clearance.

Choosing and applying to a CBZ

Not every CBZ fits every business. GACC’s “full-lifecycle management” approach explicitly directs localities to control incremental supply, optimise stock and raise quality — meaning new zone applications are scrutinised for genuine industrial logic, not granted indiscriminately. A foreign firm should shortlist zones by existing cluster strength (aviation leasing in Tianjin Dongjiang, biomedical in Chengdu Hi-tech and Nantong, China–Europe hubbing in Xi’an) and by the specific “bonded+” right it needs (repair, testing, remanufacturing, cross-border e-commerce, training).

The application itself is not a single licence but a layered fit: zone admission by the local zone authority, customs registration, and — for special regimes like the outside-the-zone biomedical code or the financial-leasing remote-supervision route — a separate qualification filed with customs. Engaging the zone’s investment-promotion office early, and aligning the project with the zone’s encouraged “indent catalogue”, typically unlocks fiscal and land incentives on top of the customs benefits.

Smart supervision and the SME angle

The “smart supervision” pillar matters most for smaller firms that lack dedicated compliance teams. Pilots such as “internet + audit” and “self-inventory + self-tax” let trusted enterprises report and reconcile data electronically rather than host physical inspections, and the comprehensive service platform is meant to consolidate regulatory touchpoints so a firm deals with one window, not many. For an SME, this converts a CBZ from “great if you have scale” into a usable entry for bonded import, processing and re-export at modest volume.

综合保税区2026升级：扩能提质的24项措施

综保区的新顶层蓝图

2026年4月14日，经国务院同意，国务院办公厅转发海关总署《关于促进综合保税区扩能提质的若干措施》（国办函〔2026〕40号），推出24项改革措施。这是继2019年1月国务院《关于促进综合保税区高水平开放高质量发展的若干意见》（国发〔2019〕3号）之后，国家再次出台支持综保区发展的顶层设计文件。海关总署于2026年4月27日举行新闻发布会解读。

时机用意明确：2026年是中国综保区建设20周年。综保区是开放层次高、通关便捷、政策优惠的海关特殊监管区域，已成为外贸发展的重要平台。2026年文件明确回应全球贸易格局重塑与”双循环”战略需要——推动综保区从纯出口加工转向统筹服务国内国际两个市场。

规模与重要性

数据说明了政策关注度。中国现运行168个综保区，覆盖全部31个省份。2025年，全国综保区实现进出口7.2万亿元，约占同期全国16%；2026年前5个月即达3.5万亿元，同比增长27.1%，约占全国16.9%。用海关总署的话说，综保区以约十万分之五的国土面积贡献了全国约六分之一的外贸进出口。对任何外国制造商或贸易商而言，综保区不是小众工具，而是主流渠道。

“四转四提升”

24项措施围绕”四转四提升”框架：

  1. 产业形态：从传统加工物流转向多元化、高端化生产与服务深度融合——提升保税维修、保税检测、再制造、跨境电商、保税培训等”保税+”新业态（7条）。
  2. 功能作用：从贸易导向转向突出国家战略需求——实施重大技术装备产业链异地监管、优化重点商品管理、差异化合格评定（4条）。
  3. 发展模式：从”两头在外”转向服务双循环——支持区港联动、出口转内销、特定货物便捷出区、简化设备出区、优化跨境结算（7条）。
  4. 监管方式：从围网管理转向数智化、协同化智慧监管——建设智慧监管体系、全生命周期管理、综合服务平台（6条）。

保税维修：正面清单走向负面清单

标志性变化在保税维修。此前可修产品实行正面清单——四批目录共276类。2026措施探索转向负面清单管理，大幅拓宽范围。同时拓宽流向：维修成品可继续在区内加工后离境出口，并分步推进转内销；国产出口产品自境外进入综保区维修后复运出境，不受维修产品目录及禁止进口旧机电目录限制。2025年，全国综保区维修进出口值3757.3亿元，同比增长3.2%。对高端装备与电子类外企，这提供了可信的在华MRO与售后布局。

融资租赁与异地委托监管

另一具体放宽为跨境融资租赁。此前异地委托监管仅覆盖飞机、船舶、海洋工程结构物3类，使租赁货物免实际入区。2026措施将其扩展至所有无法实际入区的重大技术装备及其零配件，并建立飞机及航空发动机全程保税完成生产、试飞、交付的联动机制。天津东疆综保区——中国最大、世界第二的飞机租赁聚集地——2025年通过保税租赁进口飞机243架、货值867.6亿元（增长28.7%）。此次扩围意味着资本设备租赁的更广开放。

生物医药研发与物流联动

措施亦惠及生物医药企业。与其强求研发迁入区内，海关将试点对符合条件的区外生物医药研发企业赋予综保区海关注册编码，使其共享区内保税研发红利——一种”让政策走出去”的思路。物流方面，文件支持在综保区设立航空前置货站及中欧班列集结中心配套设施，构建”通道+枢纽+产业”格局。2025年，中欧班列（西安）经西安综保区集结14万标箱（1709列，增长21.2%），货值336.5亿元（增长10.8%），占班列进出口总额46.1%。

智慧监管收尾：应用人工智能、物联网、数字孪生、区块链；试点”互联网+稽核查””自行盘点+自主补税”，实现”数据多跑路、企业少跑腿”。

外国企业应如何行动

  • 若从事进口、加工、复出口，将业务布局综保区以暂缓征税，并免保税进项增值税。
  • 对高价值装备的维修/售后，评估由276类正面清单转向负面清单——将有更多产品符合条件。
  • 对资本设备租赁入华，利用扩围后的异地委托监管路线，避免货物实际入区搬运。
  • 生物医药研发集团应探索区外赋码试点，无需搬迁实验室即可享受保税研发红利。
  • 在放宽许可与通关规则下，测算依托综保区的”出口转内销”路径，直接从区内服务中国市场。
  • 尽早接入综保区智慧监管通道——合规、数据驱动的企业获更快通关。

如何选择与申请综保区

并非每个综保区都适合每类业务。海关总署”全生命周期管理”思路明确要求地方控制增量、优化存量、提升质量——意味着新设综保区申请须论证真实产业逻辑，而非随意获批。外国企业应按既有集群优势（天津东疆的航空租赁、成都高新与南通的生物医药、西安的中欧班列枢纽）及所需的具体”保税+”权利（维修、检测、再制造、跨境电商、培训）来初筛。

申请本身不是一张执照，而是分层适配：区管委会的企业入区核准、海关注册，以及——对区外生物医药赋码、融资租赁异地委托监管等特殊制度——向海关另行申报的资质。尽早对接区招商部门，并将项目与片区”鼓励类目录”对齐，通常可在海关红利之外叠加财政与土地激励。

智慧监管与中小企业视角

“智慧监管”支柱对缺乏专职合规团队的小企业最有意义。”互联网+稽核查””自行盘点+自主补税”等试点让守信企业以电子方式报送并对账，而非迎接实地稽查；综合服务平台意在整合监管触点，使企业面对”一个窗口”而非多个部门。对中小企业而言，这使综保区从”有规模才好用”变为可承载小规模保税进口、加工与复出口的实用入口。

Sources

FTZ Setup / 自贸区落地

Hainan FTP Customs Closure and the 2026 FTZ Policy Rollout

  • Hainan FTP’s island-wide customs closure on 18 December 2025 rests on six supporting policies: the import-taxed goods catalogue, the goods-circulation tax policy, the prohibited/restricted list, the customs supervision measures, the processing-value-add tax-collection measures, and the “second-line” port management measures.
    海南自贸港全岛封关运作（2025年12月18日）依托六项配套政策：进口征税商品目录、货物流通税收政策、禁限清单、海关监管办法、加工增值免关税税收征管办法、”二线口岸”运行管理办法。
  • The closure applies the “four mores” — more favourable zero-tariff, looser trade management, more convenient passage, and more efficient and precise supervision — with zero-tariff coverage at 74% of tariff lines (over 6,600 lines).
    封关贯彻”四个更加”——更加优惠的零关税、更加宽松的贸易管理、更加便利的通行、更加高效精准的监管，零关税覆盖74%税目（超6600个税目）。
  • The prohibited/restricted list creates a nationally leading bonded-repair regime: 305 product codes may be repaired in-zone, with the 38 exception codes assessed by Hainan province itself.
    禁限清单形成全国开放度领先的保税维修政策：305个商品编码可在区内维修，其中38个例外编码由海南省自行评估后开展。
  • At the 10 April 2026 briefing MOFCOM committed to deeper alignment with high-standard rules, field-level data-outflow negative lists, and firm landing of value-added telecoms, biotech and wholly foreign-owned hospital pilots.
    在2026年4月10日吹风会上，商务部承诺更深入对接高标准规则、制定字段级数据出境负面清单，并抓好增值电信、生物技术、外商独资医院试点落地。
  • Nationwide, 485 FTZ institutional-innovation results have been replicated, and MOFCOM will keep selecting best-practice cases — an FTZ reform often becomes a national rule within one to two years.
    全国层面已复制推广485项自贸区制度创新成果，商务部将持续甄选最佳案例——自贸区的一项改革往往一两年内即成为全国规则。
  • Foreign firms should treat the FTZ/Hainan “negative list + information reporting” model as the default entry frame and watch the data-outflow and services pilots as the next opening frontier.
    外国企业应将自贸区/海南”负面清单+信息报告”模式视为默认准入框架，并将数据出境与服务业试点视为下一开放前沿。

Hainan FTP Customs Closure and the 2026 FTZ Policy Rollout | 海南自贸港封关与2026自贸区政策落地

The closure that redefined Hainan’s border

On 18 December 2025, Hainan Free Trade Port (FTP) formally launched island-wide customs closure (全岛封关运作). Far from a ceremonial date, this was the operational switch-on of a new customs interface between Hainan and the rest of China. As the 2026 Hainan Government Work Report recounts, all key closure preparations and the software-and-hardware build-out were completed, and ten “second-line ports” (二线口岸) were officially activated. The closure is built on six supporting policies and their implementing rules: the catalogue of imported taxable goods, the goods-circulation tax policy, the list of prohibited and restricted goods/items, the customs supervision measures, the tax-collection measures for processing-with-value-add duty-free goods, and the “second-line” port operation-management measures.

The headline effect is the jump in zero-tariff coverage from 21% to 74% of tariff lines — more than 6,600 lines — broadly covering most manufacturing categories. This means imported raw materials, components and production equipment for in-zone enterprises are now largely duty-free, a structural cost advantage for any manufacturer or trader using Hainan as a base.

The “four mores” in practice

Hainan’s closure is summarised by the “four mores” (四个更加): more favourable zero-tariff policy, looser trade-management measures, more convenient passage measures, and a more efficient and precise supervision model. The data through 2026 shows them working. From 18 December 2025 to 31 May 2026, zero-tariff imports reached RMB 2.645 billion (up 1.2 times year-on-year), with tax relief of RMB 440 million (up 74.1%); processing-with-value-add imports for domestic sale reached RMB 580 million, with tariff relief of RMB 30.246 million. Eight external-opening ports run efficiently, import clearance time is compressed by 28%, and “direct release” (径予放行) has been applied to 70,000 tonnes of imported goods for five enterprises. Ten “second-line” ports operate with simplified declaration (cut by over 60% for outbound goods), and low-risk goods get “second-level” instant release.

For an investor, the practical read is that Hainan now offers a genuine duty-light, free-port-style environment — but one supervised through a “smart customs” model rather than physical fences alone.

Bonded repair and the prohibited/restricted list

A standout element is the bonded-repair (保税维修) regime enabled by the prohibited/restricted list (禁限清单). Hainan is permitted to operate a nationally leading bonded-repair policy: enterprises may carry out repair on a total of 305 product codes, and for 38 codes where the list applies exception measures, the repair qualification is assessed by Hainan province itself. This lowers the institutional cost of cross-border repair and positions Hainan as a regional maintenance, repair and overhaul (MRO) hub.

The broader trade-management easing also lets Hainan trial “two-ends-out” (两头在外) bonded repair and expand the scope of products eligible for bonded maintenance. For foreign firms in aviation, high-end equipment and electronics, this is a concrete, usable opening — not just a slogan.

The 2026 FTZ upgrade strategy and institutional opening

Hainan is one pole; the national FTZ network is the other. At the 10 April 2026 State Council policy briefing, MOFCOM Assistant Minister Yuan Xiaoming laid out the 2026 FTZ upgrade strategy with four pillars. The first and most relevant to foreign investors is deeper institutional-opening trials: aligning with high-standard international economic and trade rules, exploring “from 0 to 1” institutional breakthroughs, and — specifically — formulating scenario-based, field-level negative lists for cross-border data outflows. MOFCOM also pledged to ensure already-issued opening measures in value-added telecoms, biotechnology and wholly foreign-owned hospitals are implemented effectively, and to keep expanding high-level services opening.

This is where the next wave of market access will be tested. The field-level data-outflow negative list, in particular, responds directly to foreign tech and internet firms’ need for predictable cross-border data rules — a long-standing friction point.

Replication: why an FTZ reform becomes national law

A feature of China’s FTZ model is that pilots are copied. MOFCOM reports 485 FTZ institutional-innovation results already replicated at the national level, and it will continue to select and promote new best-practice cases. The mechanism is deliberate: an FTZ proves a reform, then it scales. For foreign investors, the takeaway is that today’s FTZ-only opening (say, a relaxed services sub-sector or a data rule) is a preview of tomorrow’s nationwide norm. Planning around the FTZ version therefore buys both an immediate advantage and first-mover positioning for the national rollout.

What foreign firms should do

  • Screen the 2024 negative list (and the shorter FTZ negative list) first; FTZs run “pre-establishment national treatment plus negative list”, so off-list sectors are open on equal terms.
  • For Hainan-bound manufacturing or trade, model the 74% zero-tariff coverage and the processing-with-value-add duty exemption into landed-cost projections.
  • If you operate aviation, equipment or electronics repair, evaluate Hainan’s 305-code bonded-repair regime and the provincial self-assessment path for the 38 exception codes.
  • Track the field-level cross-border data-outflow negative lists emerging from FTZ trials — they will shape compliant data architectures.
  • Watch the value-added-telecoms, biotech and wholly foreign-owned-hospital pilots; an FTZ is the fastest compliant entry while they remain pilot-restricted nationally.
  • Treat “information reporting, not approval” as the default FTZ posture for foreign-invested incorporation and change.

FTZ versus national negative list, and how closure changes calculus

A frequent error is to treat the national negative list as the only screen. FTZs run a separate, shorter negative list, and Hainan’s closure adds a third layer — the “import-taxed goods catalogue” and the prohibited/restricted list. The practical sequence for an investor is: (1) test the national list; (2) test the FTZ list for a local pilot opening; (3) for Hainan specifically, test the zero-tariff negative list and the second-line rules. A sector closed nationally may be pilot-opened in a given FTZ, and a good imported under Hainan’s zero-tariff list bears no duty. Closure therefore reshapes location calculus: activities that are duty-exposed elsewhere can be restructured through Hainan.

The tax mechanics reinforce the point. With zero-tariff coverage at 74% of tariff lines, imported production equipment and components for in-zone enterprises are largely duty-free, and the processing-with-value-add regime deducts Hainan-added value before the remaining goods enter the mainland under a reduced duty base. Investors should model not just the headline corporate income tax, but the embedded customs-duty and import-VAT savings, which for capital-intensive manufacturing can rival or exceed the income-tax benefit.

A worked illustration: aviation MRO in Hainan

Consider a foreign aviation-equipment maker using Hainan’s 305-code bonded-repair regime. Under the closure, it can import worn units tariff-free into the zone, repair them — with the 38 exception codes assessed by Hainan province itself — and re-export or, step by step, sell domestically. The 74% zero-tariff coverage lowers the cost of imported spares, while the “second-line” simplified declaration (cut by over 60%) shortens clearance. Pair this with Hainan’s talent and tax settings and the firm has a complete operating model. This is precisely the regime the 2026 measures enable, not mere policy rhetoric.

What to watch in the rest of 2026

Two developments deserve monitoring through the remainder of 2026. First, the field-level cross-border data-outflow negative lists now being trialled in FTZs — their scope will define compliant data architectures for foreign tech firms. Second, the pace of replication: as MOFCOM promotes new best-practice cases, an opening proven in one zone typically reaches others within a year or two. Investors who track both signals can time market entry to capture a pilot advantage before it becomes a crowded norm.

海南自贸港封关与2026自贸区政策落地

重构海南边界的封关

2025年12月18日，海南自由贸易港正式启动全岛封关运作。这远非一个仪式性日期，而是海南与中国其他地区之间全新海关接口的操作性切换。据2026年海南省政府工作报告中所述，封关准备重点任务和软硬件建设全面完成，10个”二线口岸”正式启用。封关依托六项配套政策及相关制度：进口征税商品目录、货物流通税收政策、禁限类货物物品清单、海关监管办法、加工增值免关税货物税收征管办法、”二线口岸”运行管理办法。

其核心效应是”零关税”商品税目比例由21%提升至74%——超6600个税目，基本涵盖绝大多数制造业门类。这意味着区内企业进口原材料、零部件及生产设备基本免征关税，对任何以海南为基地的制造商或贸易商都是结构性成本优势。

“四个更加”落到实处

海南封关以”四个更加”概括：更加优惠的零关税政策、更加宽松的贸易管理措施、更加便利的通行措施、更加高效精准的监管模式。2026年的数据印证了其运行。2025年12月18日至2026年5月31日，零关税进口货物26.45亿元（同比增长1.2倍），减免税款4.4亿元（增长74.1%）；加工增值免关税内销货值5.8亿元，减免关税3024.6万元。全岛8个对外开放口岸高效运行，进口货物平均通关时间压缩28%，5家企业7万吨进口货物应用”径予放行”模式；10个”二线口岸”申报项目大幅简化（出岛货物简化达60%以上），低风险货物”秒速放行”。

对投资者而言，实务结论是：海南现今提供真正的低税、类自由港环境——但它通过”智慧海关”模式而非单纯物理围网实施监管。

保税维修与禁限清单

一个突出亮点是由禁限清单赋能的保税维修制度。海南获准形成全国开放度领先的保税维修政策：企业可开展总计305个商品编码的产品维修，禁限清单执行例外措施的38个编码的维修资质由海南省自行评估后开展。这降低了跨境维修的制度性成本，将海南定位为区域性的MRO（维护、维修与大修）枢纽。

更广泛的贸易管理放宽还允许海南试点”两头在外”保税维修，并扩大适修产品范围。对航空、高端装备与电子类外企而言，这是可用、具体的开放，而非一句口号。

2026自贸试验区提升战略与制度型开放

海南是一极，全国自贸区网络是另一极。在2026年4月10日国务院政策例行吹风会上，商务部部长助理袁晓明提出含四大支柱的2026自贸试验区提升战略。对外国投资者最相关的是第一支柱——更深入的制度型开放试验：对接国际高标准经贸规则，探索”从0到1″的制度突破，并具体制定场景化、字段级数据出境负面清单。商务部还承诺抓好增值电信、生物技术、外商独资医院等领域已出台开放举措落地见效，持续扩大服务业高水平开放。

这正是下一波市场准入的试验场。字段级数据出境负面清单直接回应了外国科技与互联网企业对可预期跨境数据规则的长期诉求——一个长期痛点。

复制推广：为何自贸区改革会成为全国规则

中国自贸区模式的一大特征是试点被复制。商务部披露国家层面已累计复制推广485项自贸区制度创新成果，并将持续甄选推广新一批最佳案例。其机制是有意为之：自贸区验证改革，再向全国铺开。对外国投资者而言，启示是：今日仅限自贸区的开放（如某服务业子领域放宽或某项数据规则）正是明日全国规范的预演。围绕自贸区版本做规划，既获得即时优势，也为全国推广抢占先机。

外国企业应如何行动

  • 先筛查2024年版负面清单（及更短的自贸区负面清单）；自贸区实行”准入前国民待遇加负面清单”，清单外行业内外资一致开放。
  • 对落地海南的制造或贸易，将74%零关税覆盖与加工增值免关税计入到岸成本测算。
  • 若经营航空、装备或电子维修，评估海南305个编码的保税维修制度及38个例外编码的省级自行评估路径。
  • 跟踪自贸区试点中浮现的字段级跨境数据出境负面清单——它们将塑造合规的数据架构。
  • 关注增值电信、生物技术、外商独资医院试点；在它们全国仍属试点限制时，自贸区是最快的合规入口。
  • 将”信息报告而非审批”视为自贸区外资设立与变更的默认姿态。

自贸区负面清单与全国版之别，以及封关如何改变算盘

常见误区是以为全国版负面清单是唯一的筛子。自贸区另有一份更短的负面清单，而海南封关又加了一层——”进口征税商品目录”与禁限清单。对投资者的实务顺序是：（1）测全国版；（2）测自贸区版以寻找本地试点开放；（3）对海南，还要测零关税负面清单与二线规则。全国封闭的行业可能在某自贸区试点开放，而海南零关税清单下的货物免征关税。封关由此改变选址算盘：在别处有关税暴露的活动，可经海南重构。

税制机制强化这一点。零关税覆盖74%税目，区内企业进口生产设备与零部件基本免税，加工增值制度使在海南新增的价值在货物进入内地前扣除、按降低的税基计征。企业应测算的不只是显性企业所得税，还有内含的关税与进口环节增值税节省，对资本密集型制造，其量级可媲美甚至超过所得税优惠。

实例演示：海南航空MRO

设想一家外国航空装备制造商利用海南305个编码的保税维修制度。封关下，它可将磨损部件免税进口入区、开展维修——其中38个例外编码由海南省自行评估——并复运出境或分步转内销。74%零关税覆盖降低进口备件成本，而”二线”申报简化（压缩超60%）缩短通关。叠加海南的人才与税制安排，企业便拥有完整运营模式。这正是2026措施所赋能的体制，而非空洞宣示。

2026年下半程值得关注

两项进展值得在2026年余下时间跟踪。其一，自贸区正在试点的字段级数据出境负面清单——其范围将界定外国科技企业的合规数据架构。其二，复制推广节奏：随着商务部推出新一批最佳案例，某片区验证的开放通常一两年内扩至其他片区。跟踪这两大信号，投资者可把握试点红利、赶在变成拥挤常态前进入。

Sources

FTZ Setup / 自贸区落地

China Adds Its 23rd Free Trade Zone: Inner Mongolia and the 2026 FTZ Upgrade Strategy

  • On 9 April 2026 the State Council published the Overall Plan for the China (Inner Mongolia) Pilot Free Trade Zone, raising China’s FTZ count to 23 — the first new FTZ of the “15th Five-Year Plan” period.
    2026年4月9日，国务院发布《中国（内蒙古）自由贸易试验区总体方案》，使中国自贸试验区总数增至23个——这是”十五五”时期设立的首个自贸试验区。
  • The Inner Mongolia FTZ spans 119.74 sq km across three zones — Hohhot, Manzhouli and Erenhot — built as a northern gateway linking China with Russia, Mongolia and the China–Mongolia–Russia Economic Corridor.
    内蒙古自贸试验区实施范围119.74平方公里，涵盖呼和浩特、满洲里、二连浩特三个片区，定位为联通俄蒙及中蒙俄经济走廊的向北开放重要桥头堡。
  • The plan sets out 19 reform measures across seven areas — trade nodes, two-way investment, logistics corridors, modern industry, innovation ecosystems, domestic-foreign cooperation and factor mobility — under a “five centres” positioning.
    《方案》从打造贸易节点、双向投资、物流通道、现代产业、创新生态、内外合作、要素融通七方面提出19项举措，形成”五个中心”定位。
  • On 18 December 2025 Hainan Free Trade Port launched island-wide customs closure (全岛封关运作), lifting “zero-tariff” coverage from 21% to 74% of tariff lines — a parallel milestone for China’s open-zone strategy.
    2025年12月18日，海南自由贸易港正式启动全岛封关运作，将”零关税”商品税目比例由21%提升至74%，是中国开放区域战略的又一里程碑。
  • At the 10 April 2026 State Council policy briefing, MOFCOM pledged to fully implement the FTZ upgrade strategy: more institutional-opening trials, new batches of delegated pilot tasks, and wider replication (485 innovations already copied nationwide).
    在2026年4月10日国务院政策例行吹风会上，商务部表示将全面实施自贸试验区提升战略——探索更多制度型开放试验、赋予新一批改革试点任务、扩大复制推广（国家层面已累计复制推广485项制度创新成果）。
  • Foreign investors should map their sector to each zone’s comparative advantage, not its prestige — Inner Mongolia for cross-border logistics and resources, coastal FTZs for manufacturing and services, Hainan for duty-free and offshore trade.
    外国投资者应将自身行业与各片区的比较优势匹配，而非只看名气——内蒙古适合跨境物流与资源、沿海自贸区适合制造与服务、海南适合免税与离岸贸易。

China Adds Its 23rd Free Trade Zone: Inner Mongolia and the 2026 FTZ Upgrade Strategy | 中国增设第23个自贸试验区：内蒙古与2026自贸试验区升级战略

Why a 23rd FTZ, and why Inner Mongolia

On 9 April 2026 the State Council released the *Overall Plan for the China (Inner Mongolia) Pilot Free Trade Zone* (hereafter the Plan), and the following day the State Council Information Office held a policy briefing on it. With this, China’s pilot free trade zones (FTZs, 自由贸易试验区) expanded to 23 — the first new FTZ launched in the “15th Five-Year Plan” (2026–2030) period, and a deliberate move to extend institutional opening from the coast deeper into the land border.

The logic is geographic and strategic. Inner Mongolia borders Russia and Mongolia, sits on the China–Mongolia–Russia Economic Corridor, and holds “eight provinces internally, Russia and Mongolia externally” (内联八省、外通俄蒙). As Assistant Minister of Commerce Yuan Xiaoming put it at the 10 April briefing, establishing the zone in the opening year of the 15th Five-Year Plan is a key deployment of the FTZ upgrade strategy and a major step in widening high-level opening. For foreign investors, the significance is that a previously under-served land-border corridor now carries the same policy-testing mandate as the coastal pioneers.

What the Inner Mongolia plan actually contains

The Inner Mongolia FTZ covers 119.74 square kilometres across three zones with clear, differentiated roles: Hohhot (呼和浩特), Manzhouli (满洲里) and Erenhot (二连浩特). The Plan grants greater reform autonomy and encourages first-mover, integrated and differentiated exploration in broader and deeper areas.

Its substance is organised as 19 reform measures in seven domains:

  • building important trade nodes that connect domestic and foreign markets;
  • raising the quality and efficiency of two-way investment cooperation;
  • smoothing the northward international logistics corridor;
  • constructing a modern industrial system with local character;
  • fostering a first-class science-and-technology innovation ecosystem;
  • deepening all-round domestic and external cooperation; and
  • creating an open platform for factor integration and mobility.

The stated positioning is to build “five centres” — an information-exchange centre, a transport-logistics centre, a factor-resource allocation centre, a key-field science-and-technology innovation centre and an industry-cooperation centre — radiating across the region. Concretely, the Plan supports Hohhot in developing service outsourcing (IT, pharmaceutical R&D), modernises border-resident mutual-trade platforms, encourages outbound investment in agriculture, livestock and energy resources along the Belt and Road, strengthens international logistics, and builds a “green computing-power guarantee hub” (绿色算力保障枢纽).

The explicit goal is, within three to five years of reform exploration, to become a high-level free trade park with convenient investment and trade, a sound innovation ecosystem, clustered advantaged industries and active international exchange — a “northward opening” strategic highland.

The Hainan parallel: island-wide customs closure

The Inner Mongolia launch should be read alongside the other 2026 landmark in China’s open-zone map: Hainan Free Trade Port (FTP) began island-wide customs closure (全岛封关运作) on 18 December 2025. This was confirmed by the 2026 Hainan Government Work Report and repeatedly restated through 2026. The closure re-engineers Hainan’s interface with the mainland: goods entering from outside China are subject to a “zero-tariff” negative list, while the “second line” to the mainland is tightly managed.

The results, as reported by Hainan authorities through 2026, are striking. From 18 December 2025 to 30 April 2026, “zero-tariff” imports reached RMB 2.26 billion, up 99.6% year-on-year; processing-with-value-add imports for domestic sale reached RMB 510 million, with tariff relief of RMB 24.573 million; and the “zero-tariff” product coverage rose from 21% to 74% of tariff lines (more than 6,600 lines). By 31 May 2026, zero-tariff imports had reached RMB 2.645 billion (up 1.2 times), with tax relief of RMB 440 million (up 74.1%). Over the same post-closure window, Hainan added 141,200 new business entities (up 59.31%), including 11,440 new enterprises (up 118.52%) and 1,016 new foreign-invested enterprises (up 35.47%); goods trade imports and exports reached RMB 137.06 billion (up 49.8%) with more than 220 countries and regions.

For an investor, Hainan and Inner Mongolia are bookends of the same strategy: one an offshore, duty-light gateway; the other a land-border, corridor gateway.

The 2026 FTZ upgrade strategy

Beyond the two new milestones, MOFCOM has set a clear 2026 agenda. At the 10 April briefing, Yuan Xiaoming outlined four pillars of the FTZ upgrade strategy:

  1. More institutional-opening trials — deeper alignment with high-standard international economic rules, scenario-based and field-level negative lists for cross-border data outflows, and firm implementation of already-issued opening measures in value-added telecoms, biotechnology and wholly foreign-owned hospitals.
  2. New-quality productive-force leadership — encouraging FTZs to pursue systemic innovation in new technologies, fields and models, and issuing policy files supporting whole-industry-chain integrated innovation in marine economy, equipment manufacturing and shipping logistics.
  3. Higher radiation of the “test-bed” effect — steadily optimising the layout of mature FTZs, assigning new batches of pilot tasks, and strengthening inter-FTZ coordination.
  4. Wider replication — having already promoted 485 FTZ institutional-innovation results at the national level, MOFCOM will select and roll out more best-practice cases.

This matters because FTZs punch far above their land footprint: the 23 zones occupy a tiny fraction of national territory yet contribute roughly one-fifth of national foreign investment and import-export value. The upgrade strategy is therefore where the next batch of market-access openings will be piloted first.

Where foreign capital fits

The 2026 context for foreign investors is unusually welcoming on paper. Manufacturing foreign-investment market-access restrictions have been fully eliminated; the 2025 edition of the *Catalogue of Encouraged Industries for Foreign Investment* added a net 205 encouraged items; and services opening is advancing through pilots in value-added telecoms, biotechnology and wholly foreign-owned hospitals. FTZs are explicitly the “test fields” for these openings, and the new Inner Mongolia zone adds a border-corridor vector to the existing coastal and interior network.

Practically, a foreign firm should not treat “FTZ” as a single monolith. The right question is which zone’s comparative advantage matches the business: Inner Mongolia for cross-border logistics, resources and agriculture-processing along the northern corridor; coastal FTZs (Shanghai/Lin-gang, Guangdong, Fujian, Tianjin, etc.) for advanced manufacturing, finance and services; and Hainan for duty-free, offshore trade and tourism-consumption. The policy dividend is real but differentiated.

Practical takeaways

  • Track the Inner Mongolia FTZ’s implementing rules as they are issued in 2026 — the Plan is a mandate, but the operational detail (pilot lists, customs procedures, incentives) follows in local decrees.
  • If your activity touches cross-border data, value-added telecoms, biotech or foreign-owned hospitals, an FTZ is now the fastest legal pathway — but confirm the specific pilot has been “landed” in your chosen zone.
  • For Hainan, model the duty and tax effects of the 74% zero-tariff coverage and the processing-with-value-add regime before committing a supply-chain design.
  • Use the FTZ negative list (not only the national one) to test whether a restricted sector is pilot-opened locally.
  • Watch MOFCOM’s replication list — a reform proven in one FTZ often becomes nationwide within a year or two.

Risks and caveats

Two cautions temper the optimism. First, a master plan is a mandate, not an operating manual — Inner Mongolia’s concrete incentives, customs procedures and pilot lists arrive in subsequent local decrees through 2026, so commitments should wait for the detailed rules. Second, the FTZ dividend is differentiated: Hainan’s duty edge, Inner Mongolia’s corridor logic and the coastal zones’ manufacturing strengths are not interchangeable. Picking a zone for prestige rather than fit risks paying zone-level compliance cost for none of the tailored benefit. Screen sector-to-zone match before committing capital.

中国增设第23个自贸试验区：内蒙古与2026自贸试验区升级战略

为什么是第23个，为什么是内蒙古

2026年4月9日，国务院发布《中国（内蒙古）自由贸易试验区总体方案》（以下简称《方案》），次日国务院新闻办公室就此举行政策例行吹风会。至此，中国自贸试验区扩围至23个——这是”十五五”时期设立的首个自贸试验区，也是将制度型开放从沿海向陆地边境纵深推进的主动布局。

其逻辑兼具地理与战略考量。内蒙古外接俄蒙、内联八省，位于中蒙俄经济走廊之上。正如商务部部长助理袁晓明在4月10日吹风会上所言，在”十五五”开局之年设立内蒙古自贸试验区，是深入实施自贸试验区提升战略的重要部署，也是扩大高水平对外开放的关键举措。对外国投资者而言，这意味着一条此前服务不足的陆地边境走廊，如今承载了与沿海先行者同等的政策试验使命。

内蒙古《方案》的实质内容

内蒙古自贸试验区实施范围119.74平方公里，涵盖呼和浩特、满洲里、二连浩特三个片区，定位清晰、分工明确。国家赋予更大改革自主权，鼓励在更广领域、更深层次开展首创性、集成式、差别化探索。

《方案》的要点为七方面19项举措：

  • 打造联通内外的重要贸易节点；
  • 提升双向投资合作质效；
  • 畅通向北开放国际大通道；
  • 构建具有特色优势的现代化产业体系；
  • 营造一流科技创新生态；
  • 深化对内对外全方位合作；
  • 打造要素融汇融通的开放平台。

其战略定位是建设”五个中心”——信息交流中心、交通物流中心、要素资源配置中心、重点领域科技创新中心和产业合作中心，辐射周边。具体措施上，《方案》支持呼和浩特发展信息技术、医药研发等服务外包，加快边民互市贸易服务平台数字化升级，鼓励在”一带一路”沿线农牧、能源资源领域对外投资，强化国际物流服务功能，并建设”绿色算力保障枢纽”。

其明确目标是：经过三至五年改革探索，建成投资贸易便利、创新生态良好、优势产业集聚、国际交往活跃的高水平自由贸易园区，成为向北开放的战略高地。

海南的对照：全岛封关运作

内蒙古的设立应与中国开放区域版图上另一2026里程碑一同解读：海南自由贸易港于2025年12月18日正式启动全岛封关运作。这在2026年海南省政府工作报告中得到确认，并在2026年持续重申。封关重构了海南与内地的接口：自境外进入的货物按”零关税”负面清单管理，而通往内地的”二线”严密监管。

据海南方面2026年披露，成效显著。2025年12月18日至2026年4月30日，”零关税”进口货值22.6亿元、同比增长99.6%；加工增值免关税内销货值5.1亿元，减免关税2457.3万元；”零关税”商品税目比例由21%提升至74%（超6600个税目）。截至2026年5月31日，零关税进口货物26.45亿元、同比增长1.2倍，减免税款4.4亿元、增长74.1%。同一封关后窗口期，海南新增经营主体14.12万户、增长59.31%，其中新增企业11.44万户、增长118.52%，新增外资企业1016户、增长35.47%；货物贸易进出口1370.6亿元、增长49.8%，与220多个国家和地区实现贸易往来。

对投资者而言，海南与内蒙古是同一战略的两极：一为离岸、低税网关，一为陆地边境、通道网关。

2026自贸试验区提升战略

除两大新里程碑外，商务部已明确2026年议程。在4月10日吹风会上，袁晓明提出自贸试验区提升战略的四大支柱：

  1. 更多制度型开放试验——深入对接国际高标准经贸规则，制定场景化、字段级数据出境负面清单，抓好增值电信、生物技术、外商独资医院等领域已出台开放举措落地见效。
  2. 新质生产力引领——鼓励更多自贸试验区聚焦新技术、新领域、新业态、新模式开展系统集成创新，推动出台支持海洋经济、装备制造、航运物流等重点领域全产业链集成创新的政策文件。
  3. 提升试验田辐射能级——稳步优化成熟自贸试验区区域布局，同步赋予新一批改革试点任务，强化联动合作。
  4. 扩大复制推广成效——国家层面已累计复制推广485项制度创新成果，下一步将甄选推广一批新的最佳案例。

这一点至关重要，因为自贸试验区以极小国土面积贡献了全国约五分之一的外商投资和进出口总额。提升战略正是下一批市场准入开放率先试点的所在。

外资的落脚点

2026年外国投资者的政策环境在纸面上空前友好。制造业领域外资准入限制已全面”清零”；2025年版《鼓励外商投资产业目录》净增205条鼓励类条目；服务业开放通过增值电信、生物技术、外商独资医院等试点推进。自贸区被明确赋予这些开放的”试验田”角色，而新设的内蒙古自贸区为既有沿海与内陆网络增添了边境走廊维度。

实践中，外国企业不应将”自贸区”视为单一整体。正确的问题是：哪个片区的比较优势与自身业务匹配——内蒙古适合北部走廊的跨境物流、资源与农业加工；沿海自贸区（上海/临港、广东、福建、天津等）适合先进制造、金融与服务；海南适合免税、离岸贸易与旅游消费。政策红利真实存在，但呈差异化分布。

实践要点

  • 跟踪内蒙古自贸区2026年陆续出台的实施细则——《方案》是授权，但操作细节（试点清单、海关程序、激励政策）随地方规章落地。
  • 若业务涉及跨境数据、增值电信、生物技术或外商独资医院，自贸区现今是最快合法路径——但须确认具体试点已在所选片区”落地”。
  • 对海南，应在确定供应链设计前，测算74%零关税覆盖与加工增值免关税制度的税费效应。
  • 用自贸区负面清单（不仅是全国版）测试受限行业是否在本地试点开放。
  • 关注商务部的复制推广清单——在某自贸区验证的改革通常一两年内即推向全国。

风险与警示

两点警示为乐观降温。其一，总体方案是授权而非操作手册——内蒙古的具体激励、海关程序与试点清单将在2026年陆续以地方规章落地，故承诺应待细则出台。其二，自贸区红利呈差异化：海南的关税优势、内蒙古的通道逻辑与沿海片区的制造优势不可互换。为名气而非匹配度选片区，可能付出片区级合规成本却得不到定制红利。投入资本前，先筛查行业与片区的匹配。

Sources

Policy Updates / 政策动态

Services sector opening: new pilots and CEPA upgrades

  • The 2026 “Stabilizing Foreign Investment” plan expands services-sector opening pilots to vocational training, vocational colleges and high-level STEM universities.
    2026年”固稳促优”方案将服务业开放试点扩大至职业技能培训、职业院校与高水平理工农医类大学。
  • The Beijing Integrated National Demonstration Zone for Service Sector Opening will pilot digital-economy and healthcare modern-service measures.
    北京国家服务业扩大开放综合示范区将先行先试数字经济、医药健康等现代服务业举措。
  • The CEPA arrangement with Hong Kong and Macao is upgraded, opening the services sector to Hong Kong and Macau investors first.
    内地与港澳 CEPA 全面升级，在服务业领域对港澳投资者率先开放。
  • These are “pilot” (试点) openings — eligibility and application windows are set locally by demonstration zones and FTZs.
    上述均为”试点”开放，资格与申报窗口由示范区及自贸区在地方层面明确。
  • The moves complement the 2026 negative list’s services liberalisation and the broader market-access agenda.
    这些举措与2026年版负面清单的服务业放开及更广的市场准入议程相互呼应。
  • FIEs should monitor demonstration-zone and FTZ announcements for eligible sub-sectors and launch timelines.
    外资企业应关注示范区与自贸区公告，锁定可进入的细分领域与启动时间。

Services sector opening: new pilots and CEPA upgrades | 服务业扩大开放新举措

Overview

As the first pillar of the Action Plan for Stabilizing and Improving Foreign Investment (利用外资固稳促优行动方案), China is deepening services-sector opening through a set of pilot measures. Issued on 16 June 2026 (商资发〔2026〕97号) and detailed at the 22 June 2026 SCIO briefing, the measures take effect from 1 July 2026 and target education/training, the Beijing service-opening demonstration zone, and the upgraded CEPA with Hong Kong and Macao.

This article focuses on the services-opening specifics most relevant to foreign investors evaluating China entry or expansion.

Informational guidance only; exact scopes and timelines are set locally, so verify with the responsible authority before acting.

What is opening

Vocational training, colleges and STEM universities

  • Steadily expand opening pilots for vocational-skills training institutions and vocational colleges.
  • Expand opening pilots for high-level science / engineering / agriculture / medicine universities (理工农医类大学).
  • These pilots let foreign education and training providers participate under defined pilot rules, subject to local eligibility.

Beijing integrated demonstration zone

  • Upgrade the Beijing Integrated National Demonstration Zone for Service Sector Opening, a long-running pilot platform.
  • Pilot digital-economy and healthcare modern-service opening measures — for example, data-related and telehealth/healthcare-service trials within the zone.
  • Eligibility and specific measures are announced by Beijing municipal authorities and the zone.

CEPA upgrade for Hong Kong and Macao

  • Comprehensively upgrade the Closer Economic Partnership Arrangement (CEPA) with Hong Kong and Macao.
  • Open the services sector to Hong Kong and Macau investors first, ahead of the nationwide schedule.
  • Sectors covered include a broad range of services where the two SARs have comparative strength.

Who can benefit and how

  • Education and training groups can explore the vocational-training / college pilots as a controlled China entry.
  • Digital-economy and healthcare service providers should track Beijing zone sub-measures for eligibility windows.
  • Hong Kong / Macao service investors gain earlier access to services opening than non-SAR foreign investors.
  • All pilots remain local and phased — there is no single national licence; each pilot has its own application route.

What to do next

  • Identify which pilot (vocational/college/STEM, Beijing zone, CEPA) matches your service line.
  • Monitor the Beijing demonstration-zone portal and the Ministry of Commerce pilot announcements for eligible sub-sectors.
  • For Hong Kong/Macao investors, review the upgraded CEPA schedules for first-mover openings.
  • Prepare local eligibility evidence (qualifications, track record, compliance record) ahead of application windows.
  • Confirm with the local competent authority that the pilot covers your exact activity before committing investment.

Sources

  • 中华人民共和国中央人民政府（国务院）— 《利用外资固稳促优行动方案》全文：https://www.gov.cn/zhengce/zhengceku/202606/content_7072838.htm
  • 商务部 — 关于印发《利用外资固稳促优行动方案》的通知（商资发〔2026〕97号）：https://tradeinservices.mofcom.gov.cn/article/zcfb/zcfg/202606/183553.html

Related reading

  • see also: Stabilizing Foreign Investment Action Plan: 15 measures at a glance / 利用外资固稳促优行动方案：15条举措总览
  • see also: Financial sector opening measures / 金融业开放新措施
  • see also: 2026 Negative List for foreign investment: what changed / 2026 年外资准入负面清单：主要变化

服务业扩大开放新举措

概述

作为《利用外资固稳促优行动方案》的第一支柱，中国通过一系列试点举措深化服务业开放。方案于2026年6月16日印发（商资发〔2026〕97号），并在6月22日国新办发布会解读，自2026年7月1日起落地，重点涵盖教育培训、北京服务业扩大开放示范区，以及升级后的内地与港澳 CEPA。

本文聚焦与外资评估来华或扩张最相关的服务业开放细节。

本文仅为信息性指引；具体范围与时间由地方规定，行动前请向主管机关核实。

开放内容

职业技能培训、职业院校与理工农医高校

  • 稳步扩大职业技能培训机构与职业院校对外开放试点。
  • 扩大高水平理工农医类大学对外开放试点。
  • 上述试点在既定规则下允许境外教育培训主体参与，资格由地方明确。

北京服务业扩大开放综合示范区

  • 升级北京国家服务业扩大开放综合示范区这一长期试点平台。
  • 先行先试数字经济与医药健康现代服务业举措（如区内数据相关、远程医疗/健康服务试点）。
  • 具体举措与资格由北京市及示范区发布。

内地与港澳 CEPA 升级

  • 全面升级内地与香港、澳门的更紧密经贸关系安排（CEPA）。
  • 在服务业领域对香港、澳门投资者率先开放，早于全国节奏。
  • 覆盖港澳具比较优势的广泛服务领域。

适用对象与路径

  • 教育与培训集团可把职教/高校试点作为受控的来华切入点。
  • 数字经济与医疗服务提供者应跟踪北京示范区子举措的资格窗口。
  • 港澳服务投资者较非港澳外资更早获得服务业开放机会。
  • 所有试点仍为地方、分阶段性质，没有统一的全国牌照，各有申报路径。

下一步建议

  • 明确哪类试点（职教/高校/理工农医、北京示范区、CEPA）匹配自身服务线。
  • 关注北京示范区门户与商务部试点公告中可进入的细分领域。
  • 港澳投资者审阅升级后的 CEPA 减让表，把握先行开放。
  • 提前准备地方资格证明（资质、业绩、合规记录）。
  • 投入前，向地方主管机关确认试点覆盖确切业务。

来源

  • 中华人民共和国中央人民政府（国务院）— 《利用外资固稳促优行动方案》全文：https://www.gov.cn/zhengce/zhengceku/202606/content_7072838.htm
  • 商务部 — 关于印发《利用外资固稳促优行动方案》的通知（商资发〔2026〕97号）：https://tradeinservices.mofcom.gov.cn/article/zcfb/zcfg/202606/183553.html

相关阅读

  • see also: 利用外资固稳促优行动方案：15条举措总览 / Stabilizing Foreign Investment Action Plan: 15 measures at a glance
  • see also: 金融业开放新措施 / Financial sector opening measures
  • see also: 2026 年外资准入负面清单：主要变化 / 2026 Negative List for foreign investment: what changed
Policy Updates / 政策动态

Stabilizing Foreign Investment Action Plan: 15 measures at a glance

  • On 16 June 2026, MOFCOM, NDRC and MOF issued the “Action Plan for Stabilizing and Improving Foreign Investment” (商资发〔2026〕97号), approved by the State Council, with measures rolling out from 1 July 2026.
    2026年6月16日，商务部、国家发展改革委、财政部印发《利用外资固稳促优行动方案》（商资发〔2026〕97号），经国务院同意，相关举措自2026年7月1日起落地。
  • The plan sets out 15 measures across five areas: market access, investment convenience, investment promotion, service safeguards, and investment management.
    方案围绕五大方面提出15条举措：扩大市场准入、提升投资便利度、提高投资促进水平、健全服务保障、优化外资管理。
  • Market access opens further in services (vocational training, colleges, STEM universities), finance (Treasury futures, fund advisory, cross-border financing, domestic listing) and pharma (segmented manufacturing, wholly-foreign-owned hospitals).
    市场准入在服务业（职业技能培训、职业院校、理工农医高校）、金融业（国债期货、基金投顾、跨境融资、境内上市）和医药（分段生产、外商独资医院）进一步放宽。
  • Investment convenience improves via revised foreign-M&A rules, scenario-based data-export negative lists in FTZs, profit-reinvestment tax relief, and support for foreign R&D centers.
    投资便利度通过修订外资并购规定、自贸区场景化数据出境负面清单、利润再投资税收优惠、支持外资研发中心等提升。
  • Service safeguards mandate national treatment for FIEs in government procurement and bidding, and a closed-loop mechanism for resolving operational blockages.
    服务保障要求在外资企业政府采购、招投标中落实国民待遇，并建立经营堵点闭环解决机制。
  • The plan is the most comprehensive pro-FDI package since the 2024 negative list, signalling continued high-level opening.
    该方案是2024年版负面清单以来最系统的稳外资举措，释放持续扩大高水平开放的信号。

Stabilizing Foreign Investment Action Plan: 15 measures at a glance | 利用外资固稳促优行动方案：15条举措总览

Overview

On 16 June 2026, China’s Ministry of Commerce (MOFCOM), the National Development and Reform Commission (NDRC) and the Ministry of Finance (MOF) jointly issued the Action Plan for Stabilizing and Improving Foreign Investment (利用外资固稳促优行动方案) (商资发〔2026〕97号), with the approval of the State Council. A State Council Information Office (SCIO) briefing on 22 June 2026 detailed the measures, which began rolling out from 1 July 2026. The plan is the most comprehensive pro-foreign-investment package in recent years, organised around 15 concrete measures in five areas.

This article summarises the plan’s structure and the measures most relevant to foreign-invested enterprises (FIEs) entering or operating in China, and points to the dedicated briefs on services opening, financial opening, cross-border data, and other topics.

Informational guidance only; the exact thresholds and implementation timelines are set by the responsible authorities and local rules, so verify with the competent department before acting.

Five areas and 15 measures

1. Broadening market access

  • Services sector. Steadily expand opening pilots for vocational-skills training institutions, vocational colleges, and high-level science/engineering/agriculture/medicine universities. Upgrade the Beijing Integrated National Demonstration Zone for Service Sector Opening, piloting digital-economy and healthcare modern-service measures. Upgrade the Closer Economic Partnership Arrangement (CEPA) with Hong Kong and Macao, opening the services sector to Hong Kong and Macau investors first.
  • Financial sector. Support more foreign institutions in using risk-management tools including Treasury futures; allow foreign institutions to conduct fund investment-advisory business; provide cross-border financing convenience quotas for key FIEs; encourage domestic banks to offer “agency document preparation” international settlement services to large FIEs; optimise pre-IPO communication at exchanges and support qualified FIEs in domestic listings.
  • Pharma and related industries. Study and issue rules for drug segmented manufacturing to facilitate overseas marketing-authorisation holders in cross-border segmented manufacturing of biologics and chemicals; expand pilot regions for biotechnology and wholly-foreign-owned hospitals; encourage insurers to cover more innovative drugs and devices and bring quality innovative products into the retail channel.

2. Improving investment convenience

  • Foreign M&A. Accelerate revision of the rules on foreign investors acquiring domestic enterprises, streamlining process and consideration payment, and allowing qualified foreign equity-investment institutions to participate as strategic investors in securities issuance by non-related listed companies.
  • Cross-border data. Support FTZs and service-opening pilot cities in exploring scenario-based, field-level data-export negative lists in more areas; promote national standards for important-data identification catalogs in industries such as industry, telecom, geoinformation, automotive, pharma, seeds, aerospace and civil aviation.
  • Re-investment and R&D. Implement the tax preference for overseas investors directly investing distributed profits; include more re-investment projects in the major/key foreign-investment project lists; attract foreign R&D centres with facilitated introduction of high-end foreign talent and import tax preferences for research goods.

3. Raising investment-promotion level

  • Build the “Invest in China” brand, establish a digital integrated service platform and portal, and issue lists of encouraged and prohibited local investment-promotion acts to standardise local competition for FDI.

4. Strengthening service safeguards

  • National treatment. Extend enterprise-support policies to FIEs on an equal basis (except where laws mandate otherwise or national security is involved); apply fair-competition review in government procurement and bidding.
  • Consumer participation and business environment. Support FIEs in green-consumption and international-consumer-city initiatives without brand-based exclusion; optimise the online business-environment complaint mechanism; strengthen closed-loop handling of FIE operational blockages.

5. Optimising investment management

  • Promote regional investment coordination and upgrade the foreign-investment information reporting system for better data sharing across foreign-exchange registration, licensing and fixed-asset investment.

What to do next

  • Track the five implementation tracks and map which measures affect your sector (services, finance, pharma, data, M&A).
  • For services or pharma openings, monitor Beijing demonstration-zone and FTZ pilot announcements for eligibility and application windows.
  • For finance, assess eligibility for cross-border financing quotas and domestic-listing pre-communication.
  • For data, review whether your industry’s “important data” catalog or an FTZ field-level negative list applies to your cross-border transfers.
  • Engage the “Invest in China” platform and local investment-promotion offices early; confirm national-treatment coverage in procurement/bidding.
  • Reconfirm timelines with the responsible authority before committing investment decisions.

Sources

  • 中华人民共和国中央人民政府（国务院）— 《利用外资固稳促优行动方案》全文：https://www.gov.cn/zhengce/zhengceku/202606/content_7072838.htm
  • 商务部 — 商务部 国家发展改革委 财政部关于印发《利用外资固稳促优行动方案》的通知（商资发〔2026〕97号）：https://tradeinservices.mofcom.gov.cn/article/zcfb/zcfg/202606/183553.html
  • 国务院新闻办公室 — 三部门介绍《利用外资固稳促优行动方案》有关情况（2026-06-22 新闻发布会）

Related reading

  • see also: Services sector opening: new pilots / 服务业扩大开放新举措
  • see also: Financial sector opening measures / 金融业开放新措施
  • see also: Cross-border data: scenario-based negative lists / 数据跨境场景化负面清单
  • see also: 2026 Negative List for foreign investment: what changed / 2026 年外资准入负面清单：主要变化

利用外资固稳促优行动方案：15条举措总览

概述

2026年6月16日，商务部、国家发展改革委、财政部联合印发《利用外资固稳促优行动方案》（商资发〔2026〕97号），经国务院同意。6月22日国新办举行发布会解读，相关举措自2026年7月1日起陆续落地。该方案是近年来最系统的稳外资举措，围绕15项具体举措、五大方面展开。

本文梳理方案框架，并指出与外资企业（FIE）最相关的措施，相关专题参见服务业开放、金融业开放、数据跨境等专文。

本文仅为信息性指引；具体门槛与落地时间由主管部门及地方规定，行动前请向主管机关核实。

五大方面十五项举措

一、扩大市场准入

  • 服务业。 稳步扩大职业技能培训机构、职业院校、高水平理工农医类大学对外开放试点；升级北京国家服务业扩大开放综合示范区，推动数字经济、医药健康等现代服务业试点；全面升级内地与港澳 CEPA，在服务业领域对港澳投资者率先开放。
  • 金融业。 支持更多外资机构运用包括国债期货在内的风险管理工具；支持外资机构依法开展基金投资顾问业务；为重点外资企业提供跨境融资便利化额度；引导境内银行为大型外资企业提供”代客制单”国际结算服务；优化交易所上市申报前预沟通，支持符合条件的重点外资企业境内上市融资。
  • 医药等相关产业。 抓紧出台药品分段生产细则，便利境外药品上市许可持有人开展生物制品、化学药品跨境分段生产；扩大生物技术、外商独资医院开放试点区域；支持保险公司将更多创新药械纳入商业保险，推动优质创新药械进入零售渠道。

二、提升投资便利度

  • 外资并购。 加快修订外国投资者并购境内企业规定，优化流程与对价支付；允许符合条件的外资股权投资机构以战略投资者身份参与非相关行业上市公司证券发行。
  • 数据跨境。 支持自贸区、服务业扩大开放试点城市在更多领域制定场景化、字段级数据出境负面清单；推动工业、电信、地理信息、汽车、医药、种业、航天、民航等行业重要数据识别目录国家标准制定。
  • 再投资与研发。 落实境外投资者以分配利润直接投资税收优惠；将更多再投资项目纳入重大/重点外资项目清单；便利外籍高层次人才引进、落实进口科研用品税收优惠，大力吸引外资研发中心。

三、提高投资促进水平

  • 强化”投资中国”品牌，建设外商投资数字综合服务平台与门户网站；加快出台地方招商引资鼓励/禁止事项清单，规范地方引资。

四、健全服务保障

  • 国民待遇。 除法律法规明确规定或涉及国家安全领域外，涉企支持政策对外资企业平等适用；在政府采购、招投标严格落实公平竞争审查。
  • 促消费与营商环境。 支持外资企业参与绿色消费、国际消费中心城市建设，不得以外资品牌/企业为由排斥；优化营商网络环境举报机制；强化外资经营堵点闭环解决。

五、优化外资管理

  • 推动区域引资协同，全面优化外商投资信息报告制度，健全信息共享，支撑外汇登记、行政许可、固定资产投资等管理。

下一步建议

  • 跟踪五大落地轨道，梳理与自身行业相关的举措（服务业、金融业、医药、数据、并购）。
  • 服务业/医药开放：关注北京示范区与自贸区试点公告的资格与申报窗口。
  • 金融业：评估跨境融资额度、境内上市预沟通的适用性。
  • 数据：核对企业所在行业”重要数据”目录或自贸区字段级负面清单是否适用跨境传输。
  • 尽早对接”投资中国”平台与地方招商部门；确认政府采购/招投标中的国民待遇覆盖。
  • 做投资决策前，向主管机关复核落地时间。

来源

  • 中华人民共和国中央人民政府（国务院）— 《利用外资固稳促优行动方案》全文：https://www.gov.cn/zhengce/zhengceku/202606/content_7072838.htm
  • 商务部 — 关于印发《利用外资固稳促优行动方案》的通知（商资发〔2026〕97号）：https://tradeinservices.mofcom.gov.cn/article/zcfb/zcfg/202606/183553.html
  • 国务院新闻办公室 — 三部门介绍《利用外资固稳促优行动方案》有关情况（2026-06-22 新闻发布会）

相关阅读

  • see also: 服务业扩大开放新举措 / Services sector opening: new pilots
  • see also: 金融业开放新措施 / Financial sector opening measures
  • see also: 数据跨境场景化负面清单 / Cross-border data: scenario-based negative lists
  • see also: 2026 年外资准入负面清单：主要变化 / 2026 Negative List for foreign investment: what changed
Policy Updates / 政策动态

Decoding China’s 2026 Action Plan for Stabilising and Optimising Foreign Investment

  • On 16 June 2026, MOFCOM, NDRC and MOF issued the *Action Plan for Stabilising and Optimising Foreign Investment* (Document No. 97 of 2026), a 15-measure package across five dimensions approved by the State Council.
    2026年6月16日，商务部、国家发展改革委、财政部联合印发《利用外资固稳促优行动方案》（商资发〔2026〕97号），经国务院同意，围绕五大维度推出15条举措。
  • The Plan shifts the policy centre of gravity from “allowing entry” to “ease of operating” — deepening services-sector opening while streamlining foreign M&A, data flows, onshore reinvestment and R&D centres.
    方案将政策重心从”能进入”转向”准营便利”——在深化服务业开放的同时，简化外资并购、数据流动、境内再投资与研发中心建设。
  • Manufacturing foreign-access restrictions have been fully removed; services — now about 70% of actually-utilised foreign capital — is the new opening frontier, with cloud computing, wholly-foreign-owned hospitals and biotech pilots set to expand.
    制造业外资准入限制已全面取消；服务业（实际使用外资比重约七成）成为开放新前沿，云计算、外商独资医院、生物技术等领域试点将扩大。
  • Investment facilitation measures include revising foreign M&A rules, scenario- and field-level negative lists for data export in FTZs, and easier onshore reinvestment with improved service for major projects.
    投资便利举措涵盖修订外资并购规定、自贸区场景化与字段级数据出境负面清单、境内再投资便利化及重大外资项目服务保障。
  • Investment promotion strengthens the “Invest in China” brand, explores a digital comprehensive service platform, and introduces an “encourage / prohibit” list for local-government investment attraction.
    投资促进方面强化”投资中国”品牌、探索外商投资数字综合服务平台，并建立地方政府招商引资的鼓励与禁止事项清单。
  • In the first half of 2026, nearly 4,800 foreign-invested enterprises increased investment in China, with the high-tech share of inbound investment rising.
    2026年上半年，近4800家外资企业追加对华投资，高技术领域引资占比提升。

Decoding China’s 2026 Action Plan for Stabilising and Optimising Foreign Investment | 解读《利用外资固稳促优行动方案》（2026）：外资来华五大维度十五项举措

Why this matters now

China’s foreign-investment policy has entered a “stabilise, retain and upgrade” phase. After a cycle of negative-list cuts and the full removal of manufacturing access restrictions, the policy question is no longer chiefly about *what is open* but about *how easy it is to operate, grow and reinvest*. The *Action Plan for Stabilising and Optimising Foreign Investment* (MOFCOM, NDRC and MOF, Document No. 97 of 2026, issued 16 June 2026 with State Council approval) is the most consolidated statement of that shift. Together with the 15th Five-Year Plan framing, it sets the tone for inbound investment through the late 2020s.

This article decodes the Plan’s five dimensions, highlights the measures most relevant to foreign-invested enterprises (FIEs), and translates them into a practical checklist. It pairs with our coverage of the negative list, market-access approvals and the FTZ playbook.

The five dimensions at a glance

The Plan organises its 15 measures under five headings:

  1. Expanding market access — deepening services-sector opening, raising the level of financial opening, and supporting foreign participation in industries such as pharmaceuticals.
  2. Enhancing investment facilitation — improving the foreign M&A regime, optimising cross-border data flows, and facilitating onshore reinvestment.
  3. Raising the level of investment promotion — strengthening the “Invest in China” brand and standardising investment-attraction conduct.
  4. Improving the service and safeguard system — delivering national treatment, fair-competition review, and protecting FIEs’ online rights.
  5. Optimising foreign-investment management — upgrading the foreign-investment information-reporting system.

Market access: services is the new frontier

Manufacturing foreign-access restrictions have been fully cancelled. The Plan therefore foregrounds services, which now account for roughly 70% of actually-utilised foreign capital. Concrete openings include:

  • expanding pilot openings for cloud computing, wholly-foreign-owned hospitals and biotech;
  • widening the opening of vocational training, schools and high-level science/engineering/agriculture/medical universities;
  • supporting Beijing’s comprehensive services-opening demonstration zone and piloting digital-economy and healthcare-modernisation measures;
  • upgrading the Closer Economic Partnership Arrangement (CEPA) with Hong Kong and Macao to open services to them first;
  • in finance, letting more foreign institutions use risk-management tools including government-bond futures, conduct fund-investment advisory business, and listing key foreign firms domestically.

The signal is clear: the marginal liberalisation now lives in services, and FIEs should revisit sectors — healthcare, education, cloud, finance — that were historically constrained.

Investment facilitation: from entry to operation

Three measures matter most for day-to-day FIE operations:

  • Foreign M&A: the rules on foreign investors acquiring domestic enterprises will be revised to streamline process and consideration payment, with strengthened inter-departmental coordination; qualifying foreign equity-investment institutions may participate as strategic investors in non-related listed-company securities issuance.
  • Cross-border data: FTZs and services-opening pilot cities are encouraged to formulate scenario-based, field-level negative lists for data export, and national standards for important-data identification are to be developed in sectors such as industry, telecoms, geoinformation, automotive, pharmaceuticals, seeds, aerospace and civil aviation.
  • Onshore reinvestment: the Plan facilitates foreign investors’ reinvestment in China and strengthens services for reinvestment projects — directly relevant to the profit-reinvestment tax incentives covered elsewhere on this site.

Promotion and safeguards

On promotion, the Plan strengthens the “Invest in China” brand, explores a digital comprehensive service platform for foreign investment, and — notably — moves to standardise local-government investment attraction by publishing an “encourage / prohibit” list of matters. This responds to concerns about uneven, subsidy-driven competition among localities.

On safeguards, it affirms national treatment, strengthens fair-competition review in government procurement and bidding, supports FIE participation in consumption-stimulation campaigns, and establishes a coordinated mechanism for handling online-infringement complaints — protecting FIEs’ legitimate online rights.

Optimising management

The Plan pledges a comprehensive upgrade of the foreign-investment information-reporting system, with direct reporting channels and information sharing that support foreign-exchange registration, administrative licensing and fixed-asset-investment management. For FIEs, this points to a lighter, more digital compliance footprint over time.

Practical takeaways for FIEs

  1. Re-screen services sectors (healthcare, education, cloud, finance) for openings that were previously closed.
  2. Plan M&A and reinvestment against the forthcoming revised foreign-M&A rules and the reinvestment-facilitation measures.
  3. Map your data flows to the emerging scenario-based, field-level export negative lists in FTZs.
  4. Use the major-project work-stream (national and provincial task forces) for large greenfield or expansion investments.
  5. Engage the “Invest in China” platforms and the forthcoming digital service portal for matching and approval support.

Related reading

  • The 2026 negative list and sector-specific restriction map.
  • Market-access approval and the FTZ fast-track.
  • Onshore reinvestment and the profit-reinvestment tax incentive.

解读《利用外资固稳促优行动方案》（2026）：外资来华五大维度十五项举措

为何重要

中国的外资政策已进入”固稳促优”阶段。在经历负面清单持续缩减、制造业准入限制全面取消的循环之后，政策议题的核心不再主要是”开放什么”，而是”运营、成长与再投资有多便利”。《利用外资固稳促优行动方案》（商务部、国家发展改革委、财政部，商资发〔2026〕97号，2026年6月16日印发，经国务院同意）是这一转向最集中的表述。结合”十五五”规划框架，它为2020年代末的引资定下基调。

本文拆解方案的五大维度，突出与外商投资企业（FIE）最相关的举措，并转化为实用清单。它与本站点关于负面清单、准入审批与自贸区落地的报道相互呼应。

五大维度一览

方案将15条举措归为五个部分：

  1. 扩大市场准入——深化服务业领域开放、提升金融业开放水平、支持外资参与医药等产业高质量发展。
  2. 提升投资便利度——完善外资并购管理制度、优化数据跨境流动管理、促进外资境内再投资。
  3. 提高投资促进水平——强化”投资中国”品牌、规范招商引资行为。
  4. 健全服务保障体系——落实国民待遇、公平竞争审查、维护外资企业网络合法权益。
  5. 优化外资管理——升级外商投资信息报告制度。

市场准入：服务业成为新前沿

制造业外资准入限制已全面取消。方案因而将服务业置于前台——其占实际使用外资比重约七成。具体开放包括：

  • 扩大云计算、外商独资医院、生物技术等领域试点开放；
  • 拓宽职业技能培训、职业院校、高水平理工农医类大学的对外开放试点；
  • 支持北京服务业扩大开放综合示范区，在数字经济、医药健康等现代服务业重点领域先行先试；
  • 升级内地与港澳CEPA，在服务业领域对港澳投资者率先开放；
  • 金融领域，允许更多外资机构运用国债期货等风险管理工具、依法开展基金投资顾问业务，并支持重点外资企业境内上市。

信号明确：边际自由化如今落在服务业，外商投资企业应当重新审视医疗、教育、云计算、金融等历史上受限的行业。

投资便利：从准入到准营

三项举措对外商投资企业的日常运营最为关键：

  • 外资并购： 将修订完善外国投资者并购境内企业规定，优化流程与对价支付，强化部门协同；符合条件的外资股权投资机构可以战略投资者身份参与非相关行业上市公司证券发行。
  • 数据跨境： 鼓励自贸区与服务业扩大开放试点城市制定场景化、字段级数据出境负面清单，并推动工业、电信、地理信息、汽车、医药、种业、航天、民航等行业重要数据识别目录国家标准。
  • 境内再投资： 方案促进外资境内再投资并强化再投资项目服务保障——与本站点另文所述的利润再投资税收优惠直接相关。

促进与保障

在促进方面，方案强化”投资中国”品牌，探索外商投资数字综合服务平台，并——值得注意——通过发布招商引资鼓励与禁止事项清单来规范地方招商行为，回应了对地方间补贴驱动、参差不齐竞争的关切。

在保障方面，方案落实国民待遇，加强政府采购与招标投标领域的公平竞争审查，支持外资企业参与提振消费行动，并建立涉企网络侵权举报联动机制，维护外资企业网络合法权益。

优化管理

方案承诺全面优化外商投资信息报告制度，健全直报渠道与信息共享机制，为外汇登记、行政许可、固定资产投资等外资管理提供支撑。对FIE而言，这意味着长期合规负担将更轻、更数字化。

外商投资企业的实务要点

  1. 重新筛查服务业（医疗、教育、云计算、金融）中此前关闭、如今开放的领域。
  2. 围绕并购与再投资对接即将修订的外资并购规定与再投资便利化举措。
  3. 梳理数据流向，对应自贸区新兴的场景化、字段级数据出境负面清单。
  4. 善用重大外资项目专班（国家与省级）推进大型绿地或扩产投资。
  5. 对接”投资中国”平台与即将上线的数字服务门户，获取撮合与审批支持。

延伸阅读

  • 2026年负面清单与分行业限制地图。
  • 准入审批与自贸区快速通道。
  • 境内再投资与利润再投资税收优惠。

Sources

  • 商务部、国家发展改革委、财政部：《利用外资固稳促优行动方案》（商资发〔2026〕97号）— https://fdi.mofcom.gov.cn/questionDetial.html?id=48925
  • 商务部国新办新闻发布会解读《利用外资固稳促优行动方案》— https://www.mofcom.gov.cn/zcjd/tzhz/art/2026/art_d0190837f61147258546c1bcc8f9be05.html
  • 中国贸易救济信息网：稳外资政策解读— https://cacs.mofcom.gov.cn/article/gnwjmdt/gn/202608/188808.html
Policy Updates / 政策动态

2026 Government Work Report on Foreign Investment: Policy Signals for Market Entry

  • The 2026 Government Work Report makes services the explicit focus of market-access expansion, naming value-added telecom, biotech and wholly foreign-owned hospitals as pilot priorities.
    2026年政府工作报告明确以服务业为市场准入扩大重点，点名增值电信、生物技术、外商独资医院为试点优先项。
  • It commits to compressing the cross-border services-trade negative list and to an orderly expansion of the digital domain.
    报告承诺压减跨境服务贸易负面清单，并有序推进数字领域开放。
  • It reaffirms the drive to join DEPA and CPTPP and to sign more regional and bilateral trade-and-investment agreements.
    报告重申推动加入DEPA与CPTPP，商签更多区域与双边贸易投资协定。
  • It promises to implement the new Encouraged Catalogue, promote foreign reinvestment and localised production, and polish the “Invest in China” brand.
    报告承诺实施新版鼓励目录、促进外资境内再投资与本地化生产，擦亮”投资中国”名片。
  • Officials outlined “four new business opportunities” for foreign investors — the super-scale market, services, the innovation ecosystem and opening highlands.
    官方为外资勾勒”四个新的商机”——超大规模市场、服务业、创新生态、开放高地。
  • The report frames opening as “autonomous” — opening on China’s own timetable rather than under external pressure.
    报告将开放定义为”自主开放”——按中国自身节奏而非外部压力开放。

2026 Government Work Report on Foreign Investment: Policy Signals for Market Entry | 2026年政府工作报告外资表述：市场准入政策信号

The Report in Context

Delivered at the 2026 National People’s Congress, the Government Work Report is the annual statement of economic and reform priorities that frames the year’s legislative and regulatory agenda. On foreign investment, the 2026 report is notable for continuity with the 15th Five-Year Plan and for a clear rhetorical tilt: opening is to be “autonomous” (自主开放) — pursued on China’s own timetable — and it is to be “institutional” (制度型开放), meaning alignment with high-standard international rules rather than merely lower tariff lines. For a market entrant, the report is the signal that tells you which sectors Beijing will ease next and which policy instruments (negative-list cuts, pilot zones, the encouraged catalogue) will carry the opening.

Services as the Opening Priority

The report’s foreign-investment language sits inside a broader section on “further expanding high-level opening-up.” Its most specific market-access commitment is to expand market access and opening with services as the focus (以服务业为重点扩大市场准入和开放领域). Three service sub-sectors are named explicitly as pilot priorities to be further expanded:

  • Value-added telecom — building on the 90-plus pilot approvals already granted;
  • Biotechnology — the Beijing/Shanghai/Guangdong FTZs plus Hainan pilot;
  • Wholly foreign-owned hospitals — the nine-city pilot.

The report also calls for an orderly expansion of the digital domain and for compressing the cross-border services-trade negative list — the instrument that governs how foreign service suppliers serve China from offshore. “Build the national Comprehensive Demonstration Zone for Services Opening” completes the services package. The message to investors is unambiguous: the next wave of opening is services, delivered through pilots and list compression.

Digital, Trade and the FTZ/Hainan Agenda

Beyond services, the report threads several opening instruments together:

  • Digital and data. “Orderly expand digital opening” sits alongside the data-export negative-list exploration in FTZs — a nod to the cross-border-data rules that matter to telecom, biotech and finance operators.
  • Trade and investment agreements. It commits to signing more regional and bilateral trade-and-investment agreements and to actively advancing the process of joining the Digital Economy Partnership Agreement (DEPA) and the Comprehensive and Progressive Trans-Pacific Partnership (CPTPP) — the high-standard benchmarks against which services and digital rules are being stress-tested.
  • FTZs and Hainan. It calls to optimise the layout of pilot free-trade zones, raise their innovation-leading capacity, and “solidly advance” Hainan Free Trade Port construction — the physical containers of the opening.

Two-Way Investment and the Encouraged Catalogue

On investment itself, the report’s instructions are operational:

  • Deepen the FDI promotion system and safeguard national treatment for foreign firms.
  • Implement the new Catalogue of Encouraged Industries for Foreign Investment — the 2025 edition (effective 1 February 2026, 1,679 entries) that steers capital to advanced manufacturing, modern services and high-tech.
  • Promote foreign reinvestment in China and expanded localised production — echoing the profit-reinvestment tax preferences and the “Invest in China” (投资中国) brand the State Council action plan later operationalises.
  • Strengthen service guarantees for foreign firms and polish the “Invest in China” brand.
  • Upgrade development zones and parks and guide “reasonable, orderly” cross-border layout of supply chains.

The through-line is that opening is not just about entry but about keeping foreign capital in, reinvesting, and localising.

The “Four New Business Opportunities”

At the State Council Information Office briefing interpreting the report, the head of the report’s drafting group, Shen Danyang, set out “four new business opportunities” for foreign investors:

  1. The super-scale market. China’s total retail sales of consumer goods surpassed 50 trillion yuan for the first time; foreign suppliers of quality goods have room to grow.
  2. Services development. Per-capita service-consumption expenditure reached 46.1% of total and is rising; the 2026 services-expansion-and-quality action opens market access and sectors.
  3. The innovation ecosystem. China’s complete, efficient supply chains are building new ecosystems around the digital economy and green growth; many foreign firms are adding R&D centres.
  4. Opening highlands. The FTZs, Hainan port and the services demonstration zone concentrate opening and incentives.

The framing is deliberate: it answers the “why invest in China now?” question with scale, services, innovation and zones — the same four themes the action plan later turns into measures.

Confidence and the Backdrop

The report’s optimism is buttressed by figures cited at the briefing: actual utilised foreign capital has exceeded 700 billion yuan for 16 consecutive years; in 2025, investment from Switzerland grew 66.8% and from the UK 15.9%, while e-commerce services grew 75%, medical devices 42.1% and aerospace 22.9%. Surveys cited by officials show over 90% of surveyed foreign firms will continue investing in China and nearly 70% of executives are confident about the next three to five years. The report reads these as evidence that, even amid global FDI softness, China remains a top destination — and the policy task is to defend that position.

Signal in the reportWhat it means for entry
Services as opening focusTarget telecom, biotech, hospitals, digital
Compress cross-border services-trade negative listEasier offshore service supply
Join DEPA / CPTPPRules converging to intl. standards
New Encouraged CatalogueIncentives for advanced/high-tech
Reinvestment & localisationSupport to stay and grow

What It Signals for Market Entry

The 2026 report tells a market entrant three things. First, the negative list will keep shrinking, but services — not manufacturing — is where the action is. Second, opening will be delivered through pilots and the encouraged catalogue as much as through list deletions, so zone choice and catalogue matching matter. Third, the policy bias is toward capital that reinvests, localises and brings technology — the “new quality productive forces” agenda — rather than capital that simply seeks market share. Investors who align with these biases will find the warmest reception.

Practical Takeaways

  1. Lead with services pilots. If your edge is telecom, biotech, healthcare or digital, build a pilot-zone strategy now.
  2. Match the encouraged catalogue. Confirm your lines sit in the 2025 catalogue for incentives.
  3. Plan to localise and reinvest. Signal a multi-year China commitment; it matches the policy preference.
  4. Watch DEPA/CPTPP alignment. Rules on data, procurement and IP are converging upward — build compliance early.
  5. Use the “Invest in China” platforms. The national brand and digital service platform are the front door the report is building.

The 2026 Government Work Report is, for foreign investors, less a detailed rulebook than a compass — and the compass points squarely at services, institutions, and long-term presence.

2026年政府工作报告外资表述：市场准入政策信号

报告背景

2026年政府工作报告于全国两会期间发布，是阐明年度经济与改革优先项、框定全年立法与监管议程的文件。在外资方面，2026年报告值得注意之处在于与十五五规划的连续性，以及明显的措辞倾斜：开放被定义为”自主开放”——按中国自身节奏推进——并是”制度型开放”，即对接国际高标准规则而非仅降关税。对市场进入者，报告是信号：它告诉你北京下一步将放宽哪些行业，以及哪些政策工具（负面清单缩减、试点区域、鼓励目录）将承载开放。

服务业作为开放重点

报告的外资表述置于”进一步扩大高水平对外开放”大节之内。最具体的市场准入承诺是以服务业为重点扩大市场准入和开放领域。三个服务业细分被明确点名为须进一步扩大的试点优先项：

  • 增值电信——在已批90余家试点的基础上；
  • 生物技术——北京／上海／广东自贸区及海南试点；
  • 外商独资医院——9城试点。

报告还呼吁有序推进数字领域开放，并压减跨境服务贸易负面清单——该清单规范外国服务供应商从境外服务中国市场的规则。”建好国家服务业扩大开放综合示范区”补全服务业一揽子。对外资的信息明确：下一波开放在服务业，经试点与清单压缩落地。

数字、贸易与自贸区／海南议程

除服务业外，报告将若干开放工具串联：

  • 数字与数据。 “有序推进数字领域开放”与自贸区数据出境负面清单探索并列——呼应对电信、生物技术、金融运营商至关重要的数据跨境规则。
  • 贸易投资协定。 承诺商签更多区域与双边贸易投资协定，并积极推动加入《数字经济伙伴关系协定》（DEPA）与《全面与进步跨太平洋伙伴关系协定》（CPTPP）——服务业与数字规则正据此对标压力测试。
  • 自贸区与海南。 优化自贸试验区布局范围、提升创新引领发展能级，并”扎实推进”海南自由贸易港建设——开放的物理容器。

双向投资与鼓励目录

就投资本身，报告指示具操作性：

  • 深化外商投资促进体制机制改革，保障外资企业国民待遇。
  • 实施新版《鼓励外商投资产业目录》——2025年版（2026年2月1日施行，1,679条），引导资金投向先进制造业、现代服务业、高新技术。
  • 促进外资境内再投资、扩大本地化生产——呼应利润再投资税收优惠与国务院行动方案后续落地的”投资中国”品牌。
  • 加强外资企业服务保障，擦亮”投资中国”名片。
  • 规范提升各类开发区、园区，引导产业链供应链合理有序跨境布局。

贯穿线是：开放不仅关乎进入，更关乎留住外资、再投资与本地化。

“四个新的商机”

在解读报告的国新办吹风会上，报告起草组负责人沈丹阳为外资列出“四个新的商机”：

  1. 超大规模市场。 社会消费品零售总额首次突破50万亿元；优质商品供应商仍有增长空间。
  2. 服务业发展。 居民人均服务性消费支出占比达46.1%且仍在提升；2026年服务业扩能提质行动开放市场准入与行业。
  3. 创新生态。 中国完整高效供应链正围绕数字经济与绿色增长构建新生态；众多外资增设研发中心。
  4. 开放高地。 自贸区、海南自贸港、服务业示范区集聚开放与激励。

这一框架是刻意的：它以规模、服务业、创新、园区四个主题回应”此刻为何投资中国”，也正是行动方案后续转为举措的同一四主题。

信心与背景

报告的乐观有吹风会引用数据支撑：实际利用外资连续16年超7,000亿元；2025年瑞士投资增66.8%、英国增15.9%，电子商务服务增75%、医疗器械增42.1%、航空航天增22.9%。官员引用的调查显示，九成以上受访外企将继续在华投资，近七成高管对未来3—5年有信心。报告将这些视为证据：即便全球 FDI 趋软，中国仍是头号目的地——政策任务是守住这一地位。

报告中的信号对准入的含义
服务业为开放重点瞄准电信、生物技术、医院、数字
压减跨境服务贸易负面清单境外服务供应更易
加入DEPA／CPTPP规则向国际对标
新版鼓励目录先进／高新技术激励
再投资与本地化支持驻留与成长

对市场准入的信号

2026年报告向市场进入者传达三点。其一，负面清单将持续缩减，但服务业而非制造业是重心。其二，开放将通过试点与鼓励目录，与清单删除同等重要地落地，故区域选择与目录匹配关键。其三，政策偏向再投资、本地化、带技术的资本——”新质生产力”议程——而非仅逐份额的资本。顺应这些偏向者将获最暖接待。

实操要点

  1. 以服务业试点为先。 若优势在电信、生物技术、医疗或数字，立即构建试点区域战略。
  2. 匹配鼓励目录。 确认你的产品线落在2025年版目录以享激励。
  3. 规划本地化与再投资。 释放对华多年承诺信号；这契合政策偏好。
  4. 关注DEPA／CPTPP对接。 数据、采购、IP 规则正向上对标——尽早构建合规。
  5. 运用”投资中国”平台。 国家品牌与数字服务平台是报告正在打造的正门。

2026年政府工作报告对外资，与其说是详细规则手册，不如说是指南针——而指针明确指向服务业、制度型开放与长期驻留。

Sources

Policy Updates / 政策动态

2026 State Council Action Plan on Foreign Capital: Stabilizing and Upgrading Investment

  • The State Council-approved Action Plan for Stabilizing and Optimizing Foreign Investment (商资发〔2026〕97号) was issued on 16 June 2026 and published on 22 June, with 5 areas and 15 measures.
    经国务院同意的《利用外资固稳促优行动方案》（商资发〔2026〕97号）于2026年6月16日印发、22日发布，含5方面15条举措。
  • The plan was built with 27 departments around concerns gathered from foreign-enterprise roundtables and key-project task forces.
    方案由27个部门围绕外资企业圆桌会、重点项目专班收集的关切制定。
  • Market-access measures deepen services, finance and pharma opening — vocational-education pilots, treasury-futures access, and drug segmented-production rules.
    市场准入举措深化服务业、金融、医药开放——职教试点、国债期货准入、药品分段生产细则。
  • Convenience measures ease foreign M&A, data export and reinvestment, including tax preferences for profit-reinvestment and strategic-investor status for qualified foreign equity funds.
    便利举措放宽外资并购、数据出境与再投资，含利润再投资税收优惠及合格外资股权基金的战略投资者身份。
  • The plan pledges full national treatment, fair-competition review in procurement and bidding, and a cyber-rights complaint mechanism for foreign firms.
    方案承诺全面落实外资国民待遇、招投标公平竞争审查，并建外资企业网络侵权举报联动机制。
  • Its core goal is to “stabilise the scale and upgrade the quality” of foreign investment — the “固稳促优” agenda for the 15th Five-Year Plan.
    其核心目标是外资”稳规模、提质量”——十五五的”固稳促优”议程。

2026 State Council Action Plan on Foreign Capital: Stabilizing and Upgrading Investment | 2026年国务院稳外资行动方案：固稳促优

The Plan at a Glance

On 16 June 2026, the Ministry of Commerce, the National Development and Reform Commission and the Ministry of Finance jointly issued the *Action Plan for Stabilizing and Optimizing Foreign Investment* (商资发〔2026〕97号), published on 22 June after State Council approval (经国务院同意). It is the centrepiece of Beijing’s 2026 “stabilise foreign capital” (稳外资) push and the operative document for the foreign-investment chapter of the 15th Five-Year Plan. Crucially, it was not drafted in isolation: as MOFCOM explained at the State Council Information Office briefing, the plan was built with 27 departments, drawing on concerns collected month by month from foreign-enterprise roundtables, key foreign-invested-project task forces, and bilateral and multilateral economic mechanisms. Its framing slogan is 固稳促优 — “consolidate, stabilise, and optimise” — and its stated aim is to stabilise the scale of foreign investment while upgrading its quality.

Five Areas, Fifteen Measures

The plan organises 15 measures under five headings:

  1. Expand market access (扩大市场准入)
  2. Improve the convenience of foreign investment (提升外商投资便利度)
  3. Raise the level of investment promotion (提高投资促进水平)
  4. Strengthen the foreign-investment service guarantee system (健全外商投资服务保障体系)
  5. Optimise foreign-investment management (优化外资管理)

The structure moves deliberately from “can you enter?” (market access) to “is it easy to operate?” (convenience) to “are you treated fairly?” (service guarantee) to “is administration efficient?” (management) — a full-lifecycle view of the foreign-investor experience.

Expanding Market Access

The first area is where the plan touches the negative list most directly:

  • Services. It proposes steadily expanding pilot openings for vocational training institutions, vocational schools, and high-level universities in science, technology, agriculture and medicine; supports Beijing in upgrading its Comprehensive Demonstration Zone for Services Opening to trial digital-economy and health-care moves first; and upgrades the Closer Economic Partnership Arrangement (CEPA) with Hong Kong and Macao to open services to them first.
  • Finance. It supports more foreign institutions in using risk-management tools including treasury futures, in conducting fund-investment-advisory business, and provides qualified key foreign firms with cross-border financing facilitation quotas and “customer-billed” international settlement services; it optimises pre-communication before exchange listing and supports qualified foreign enterprises in domestic listing.
  • Pharma and industry. It commits to issuing rules on cross-border segmented drug production (药品分段生产) to let overseas marketing-authorisation holders manufacture biologics and chemicals across borders, to expanding the geographic scope of biotech and wholly foreign-owned-hospital pilots, and to bringing innovative drugs and devices into commercial insurance and retail channels.

Lowering the Cost of Doing Business

The second area attacks frictions that foreign firms cite most often:

  • Foreign M&A. It will revise the rules on foreign investors acquiring domestic enterprises, streamline the process and payment terms, and — notably — allow qualified foreign equity-investment institutions to act as strategic investors in the securities issuance of non-related listed companies.
  • Data export. It supports FTZs and services-opening pilot cities in exploring scenario-based, field-level data-export negative lists, and promotes national standards for identifying important data across industries such as industry, telecom, geographic information, automotive, pharma, seeds, aerospace and civil aviation.
  • Reinvestment. It implements the tax preference for foreign investors using distributed profits for direct investment, and pulls more reinvestment projects into the major/key foreign-project lists for service support.
  • R&D centres. It eases the introduction of high-level foreign talent, supports open innovation platforms and training bases, and extends import-tax preferences for research supplies.

Raising the Level of Investment Promotion

The third area builds the “Invest in China” (投资中国) brand: it establishes a digital comprehensive service platform and portal, issues an encouragement/prohibition list for local government investment promotion, requires governments to honour policy commitments, and uses foreign economic and trade development funds to support foreign investment. The explicit intent is to make investment promotion more rules-based and less ad hoc, and to give foreign firms a clearer, nationally consistent picture of where incentives lie.

Strengthening the Service Guarantee

The fourth area is about fairness. The plan requires full implementation of national treatment for foreign firms, strengthens fair-competition review in government procurement and bidding, and supports foreign firms in consumer-boosting campaigns, government procurement and bidding on an equal footing. It also establishes a linked mechanism for reporting online infringements of foreign-enterprise rights, responding to a recurring complaint that foreign brands are exposed to unfair online treatment.

Optimising Foreign-Investment Management

The fifth area upgrades the plumbing: it will comprehensively optimise the foreign-investment information-reporting system, build direct reporting channels, and improve information sharing to support foreign-exchange registration, administrative licensing and fixed-asset-investment management. The subtext is that lighter, better-integrated reporting reduces compliance cost without loosening oversight.

Why It Matters for Investors

The plan arrives against a specific backdrop. MOFCOM data for Jan–May 2026 show actual utilised FDI at 327.29 billion yuan, down 8.6% year-on-year, though the decline narrowed by 4.6 points and May alone rose 5.9%. Officials describe foreign investment as exhibiting “four stabilities” — stable scale, stable operation, stable contribution, and stable expectations (规模稳、经营稳、贡献稳、预期稳) — with stock foreign capital rising and incremental flows broadly stable above outflows. The Action Plan is the policy response designed to defend and improve that position during the 15th FYP’s opening years.

How to Act on It

  1. Map your sector to a measure. Services, finance and pharma players should trace their plans to the specific opening clause.
  2. Use the M&A and strategic-investor route. Qualified foreign equity funds now have a clearer path into listed companies.
  3. Claim reinvestment tax preferences. If you reinvest distributed profits, confirm eligibility for the direct-investment tax preference.
  4. Engage the roundtable channel. The plan institutionalises the foreign-enterprise roundtable — use it to surface blockers.
  5. Plan for national treatment. Expect equal footing in procurement and bidding; document any deviation.

The 2026 Action Plan is less a single concession than a system: it pairs further opening with concrete fixes to the everyday frictions that determine whether foreign capital stays.

2026年国务院稳外资行动方案：固稳促优

方案概览

2026年6月16日，商务部、国家发展改革委、财政部联合印发《利用外资固稳促优行动方案》（商资发〔2026〕97号），经国务院同意后于6月22日发布。它是2026年”稳外资”部署的核心文件，也是十五五规划外资篇章的落地文件。关键在于，它并非孤立起草：正如商务部在国新办发布会上所言，方案由27个部门参与制定，吸纳了通过外资企业圆桌会、重点外资项目专班、多双边经贸机制逐月收集的关切。其主题词为”固稳促优”，明确目标是稳外资规模、提外资质量。

五方面，十五条

方案将15条举措归入五类：

  1. 扩大市场准入
  2. 提升外商投资便利度
  3. 提高投资促进水平
  4. 健全外商投资服务保障体系
  5. 优化外资管理

结构刻意由”能否进入”（市场准入）走向”是否易营”（便利度）、”是否受公平对待”（服务保障），再到”行政是否高效”（管理）——对外资全生命周期体验的系统性审视。

扩大市场准入

第一方面是方案与负面清单交集最直接之处：

  • 服务业。 稳步扩大职业技能培训机构、职业院校、高水平理工农医类大学对外开放试点；支持北京提升服务业扩大开放综合示范区水平，在数字经济、医药健康等领域先行先试；升级与港澳 CEPA，在服务业对港澳投资者率先加大开放。
  • 金融业。 支持更多外资机构使用包括国债期货在内的风险管理工具、依法开展基金投资顾问业务；为符合条件的重点外资企业提供跨境融资便利化额度与”代客制单”国际结算服务；优化上市申报前预沟通，支持符合条件的重点外资企业境内上市融资。
  • 医药与产业。 出台药品分段生产细则便利境外上市许可持有人跨境分段生产；扩大生物技术与外商独资医院试点地域范围；推动创新药械纳入商业保险与零售渠道。

降低经营成本

第二方面直面外资最常提及的摩擦：

  • 外资并购。 修订外国投资者并购境内企业规定、优化流程与对价支付；并允许符合条件的外资股权投资机构以战略投资者身份参与非相关行业上市公司证券发行。
  • 数据出境。 支持自贸区与服务业开放试点城市探索场景化、字段级数据出境负面清单；推动工业、电信、地理信息、汽车、医药、种业、航天、民航等行业重要数据识别目录国家标准。
  • 再投资。 落实境外投资者以分配利润直接投资税收优惠；将更多再投资项目纳入重大／重点外资项目清单享受服务保障。
  • 研发中心。 便利外籍高层次人才引进，支持开放式创新平台与实训基地，落实科研用品进口税收优惠。

提高投资促进水平

第三方面打造”投资中国”品牌：建设数字综合服务平台与门户；出台地方政府招商引资鼓励／禁止事项清单；要求政府严格兑现政策承诺；运用外经贸发展资金支持外资。其明确意图是使招商更规则化、更少临时化，并为外资提供全国统一、更清晰的激励图景。

健全服务保障

第四方面关乎公平。方案要求全面落实外资国民待遇，加强政府采购、招投标公平竞争审查，支持外资平等参与提振消费、政府采购、招投标。并建立外资企业网络侵权举报联动机制，回应外资品牌常遭不公平网络对待的反复诉求。

优化外资管理

第五方面升级”管道”：全面优化外商投资信息报告制度，健全直报渠道与信息共享，支撑外汇登记、行政许可、固定资产投资管理。其潜台词是：更轻、更融合的报告在放宽监管成本的同时不松懈监督。

对投资者为何重要

方案出台于特定背景。商务部2026年1—5月数据显示，实际使用外资3,272.9亿元，同比降8.6%，但降幅收窄4.6个百分点，5月当月增5.9%。官方将外资描述为”四稳”——规模稳、经营稳、贡献稳、预期稳——存量外资稳中有升、增量总体稳定且高于流出。行动方案正是为在十五五开局之年守住并改善这一态势的政策回应。

如何据此行动

  1. 将行业对应到举措。 服务业、金融、医药玩家应将自身规划追溯至具体开放条款。
  2. 利用并购与战略投资者路径。 合格外资股权基金现有了更清晰的上市公司进入通道。
  3. 申领再投资税收优惠。 若以分配利润再投资，确认是否符合直接投资税收优惠资格。
  4. 运用圆桌渠道。 方案将外资企业圆桌会制度化——用之暴露堵点。
  5. 规划国民待遇。 预期在采购、招投标中平等对待；对任何偏差留证。

2026年行动方案与其说是一项让步，不如说是一套系统：它将进一步开放与针对日常摩擦的具体修复相配，而这些摩擦正决定外资去留。

Sources

Policy Updates / 政策动态

Negative list revision enters effect

  • The 2024 edition (Order No. 23, published 8 September 2024) took effect on 1 November 2024, replacing the 2021 edition; as of 2026 it remains the operative list.
    2024 年版（第 23 号令，2024 年 9 月 8 日发布）于 2024 年 11 月 1 日施行，取代 2021 年版；截至 2026 年仍为现行有效清单。
  • Restrictive measures fell from 31 to 29; the two deleted items were the last manufacturing restrictions (publication printing Chinese-control, and Chinese-medicine decoction-piece / confidential-prescription production).
    限制措施由 31 条降至 29 条；删除的两项为最后两项制造业限制（出版物印刷中方控股、中药饮片及保密处方产品生产）。
  • For manufacturing investors, no foreign-access equity or legal-form condition applies nationally — plan as a domestic-equivalent entity, saving time and approval layers.
    对制造业投资者，全国层面无外资股比或组织形式条件——按内资等同实体规划，节省时间与审批环节。
  • For services investors, the 2024 list does not open telecom/healthcare/education/culture nationally — openings proceed via pilots; read it with the FTZ / Hainan catalogues.
    对服务业投资者，2024 年版未在全国层面开放电信／医疗／教育／文化——开放经试点推进；须与自贸区／海南试点目录并读。
  • The encouraged catalogue (2025 edition, effective 1 February 2026) expanded to 1,679 entries; pair it with the negative list to locate preferences.
    鼓励目录（2025 年版，2026 年 2 月 1 日施行）扩至 1,679 条；与负面清单配对以定位优惠。
  • Treat 1 November 2024 as a baseline, not a deadline; expect pilots to move faster than the national text and re-screen annually.
    以 2024 年 11 月 1 日为基线而非截止线；预期试点快于全国文本，并每年重新筛查。

Negative list revision enters effect | 负面清单修订正式生效

Overview

This is a policy-flash note on the entry into force of the 2024 edition of the negative list for foreign investment and what it means in practice. Published by the NDRC and MOFCOM as Order No. 23 on 8 September 2024, the revised list took effect on 1 November 2024, replacing the 2021 edition. As of 2026 it remains the operative list. The headline numbers: restrictive measures fell from 31 to 29, and manufacturing-sector foreign-access restrictions were eliminated entirely (“清零”).

The revision is the clearest single signal of China’s direction of travel on market access: a narrowing list, a cleared manufacturing sector, and a stated intent to widen services opening through pilot channels rather than the national list. For an inbound investor, the effective date is less a deadline than a baseline from which to plan.

What changed versus the 2021 edition

The 2021 edition contained 31 restrictive items. The 2024 revision deleted the two remaining manufacturing restrictions: “publication printing must be Chinese-controlled” and “prohibition on the application of steaming, frying, roasting and calcining techniques for Chinese medicinal decoction pieces, and on the production of products from confidential Chinese medicine prescriptions”. No new restrictions were added. The result is 29 items, all outside manufacturing.

Context matters: the nationwide and FTZ lists had already been cut from 93 and 122 items (2017) to 31 and 27 items (2021), and the FTZ manufacturing list reached “zero” in 2021. The 2024 step closes the last manufacturing gap at the national level and aligns the national list with the FTZ position. It also confirms the pattern that revisions are almost always liberalising — deletions outnumber additions — which is the expectation an investor should carry forward.

Practical impact for investors

For a manufacturing investor, the effect is decisive and simple: no foreign-access equity or legal-form condition applies at the national level. A greenfield plant or an acquisition in advanced manufacturing, vehicles, equipment or chemicals is treated like a domestic equivalent — the investor plans around ordinary licences and product standards, not around a foreign-investment approval gate. The practical saving is not only on the access question but on timeline: no commerce-department approval sits ahead of incorporation.

For a services investor, the effect is more indirect. The 2024 list does not itself open telecom, healthcare, education or culture at the national level; instead, the NDRC has signalled continued piloting in those fields, and concrete openings (value-added telecom trials, foreign-hospital pilots) proceed city by city. The practical move is to read the national list together with the FTZ / Hainan pilot catalogues, and to treat the absence of a national opening as a prompt to check the pilot layer rather than as a final “no”.

For all investors, the revision reinforces a stable expectation: the list is a living instrument that trend-shrinks. Planning should assume further liberalisation rather than re-tightening, while still screening each target sector against the current 29 items.

Interaction with the encouraged catalogue

The negative list and the encouraged catalogue are two sides of the same policy. On the same trajectory, the Catalogue of Encouraged Industries for Foreign Investment (2025 edition) was released and takes effect on 1 February 2026, expanding to 1,679 entries — steering foreign capital toward advanced manufacturing, modern services and central/western regions. An investor should read the two together: the negative list says what is closed or conditioned; the encouraged catalogue says where preferences apply. A project that is off the list and on the encouraged catalogue is, in policy terms, exactly where the authorities want foreign capital to land.

What to do next

Common misreads

Three misreads surround the effective date. First, some treat 1 November 2024 as a deadline to race against, when it is simply the baseline from which the current list operates; planning should start from the list as it stands, not from a countdown. Second, services investors assume the revision opened telecom, healthcare, education or culture at the national level — it did not; those openings proceed through pilots, and the national list must be read with the pilot catalogues. Third, investors screen only the negative list and overlook the encouraged catalogue, missing preferences that apply precisely to off-list, welcomed projects. Pairing the two is the practical takeaway of the revision.

  • Treat 1 November 2024 as the operative date; the 2024 edition (29 items) is the current list as of 2026.
  • For manufacturing, drop the assumption of any foreign-access condition — plan the deal as a domestic-equivalent entity.
  • For services, do not assume national opening from this list; check the FTZ / Hainan pilot catalogue city by city.
  • Pair the negative list with the 2025 encouraged catalogue (effective 2026-02-01) to locate any preference.
  • Re-screen your sector annually — the list is revised on a continuing basis, and further narrowing is the stated direction.
  • Use the effective-date baseline to time market-entry planning, but expect pilots to move faster than the national text.

Sources

Related reading

  • see also: 2026 Negative List for foreign investment: what changed
  • see also: Industry restrictions by sector: a quick map
  • see also: FIE admission rules: approval vs. filing

负面清单修订正式生效

概述

本篇为政策快讯，说明外资准入负面清单 2024 年版的生效及其实务含义。该版由发改委、商务部以第 23 号令于 2024 年 9 月 8 日发布，2024 年 11 月 1 日施行，取代 2021 年版。截至 2026 年它仍是现行有效清单。核心数字：限制措施由 31 条降至 29 条，制造业领域外资准入限制全面取消（”清零”）。

这一修订是中国市场准入方向最清晰单一的信号：清单收窄、制造业清零，并明确将通过试点渠道而非全国清单扩大服务业开放。对拟进入投资者，生效日与其说是截止线，不如说是规划的基线。

相较 2021 年版的变化

2021 年版含 31 条限制措施。2024 年修订删除了仅剩的两项制造业限制：”出版物印刷须由中方控股”与”禁止投资中药饮片的蒸、炒、炙、煅等炮制技术的应用及中成药保密处方产品的生产”。未新增任何限制。结果是 29 条，且全部在制造业之外。

背景很关键：全国与自贸区清单已由 2017 年的 93 条、122 条压减至 2021 年的 31 条、27 条，且自贸区制造业清单于 2021 年已”清零”。2024 年步骤补齐了全国层面制造业的最后缺口，使全国清单与自贸区立场对齐。它也确认了修订几乎总是自由化的模式——删多增少——这是投资者应延续的预期。

对投资者的实务影响

对制造业投资者，影响是决定性的且简单：全国层面不再适用外资股比或组织形式条件。在先进制造业、汽车、装备制造、化工设立工厂或并购，均按内资等同对待——投资者围绕普通许可与产品标准规划，而非围绕外资准入审批关卡。实务节省不仅在准入问题，也在时间表：设立前不再有商务部门审批。

对服务业投资者，影响更间接。2024 年版本身并未在全国层面开放电信、医疗、教育或文化；发改委转而明确将在这些领域持续试点，具体开放（增值电信试点、外资医院试点）按城市推进。实务动作是将全国清单与自贸区／海南试点目录一并阅读，并将”全国未开放”视为提示去查试点层，而非最终”否”。

对所有投资者，修订强化了稳定预期：清单是动态工具且趋势收窄。规划应假定进一步开放而非收紧，同时仍逐项对照现行 29 条筛查目标行业。

与鼓励目录的关系

负面清单与鼓励目录是同一政策的两面。在同一轨迹上，《鼓励外商投资产业目录（2025 年版）》已发布并将于 2026 年 2 月 1 日施行，扩至 1,679 条——引导外资投向先进制造业、现代服务业与中西部地区。投资者应将二者并读：负面清单说明何处关闭或附条件，鼓励目录说明何处适用优惠。既不在清单上、又在鼓励目录上的项目，在政策意义上正是监管者希望外资落地的所在。

下一步建议

常见误读

生效日周围有三种误读。其一，有人把 2024 年 11 月 1 日当作须赶的超期限，而它只是现行清单运作的基线；规划应从清单现状出发，而非从倒计时出发。其二，服务业投资者以为本版在全国层面开放了电信、医疗、教育或文化——并未；那些开放经试点推进，全国清单须与试点目录并读。其三，投资者只筛负面清单，漏掉鼓励目录，错失恰适用于”不在清单且受鼓励”项目的优惠。将二者配对是本版修订最实务的要点。

  • 以 2024 年 11 月 1 日为生效日；2024 年版（29 条）是截至 2026 年的现行清单。
  • 制造业：抛弃任何外资准入条件的假设——按内资等同实体规划交易。
  • 服务业：勿从此清单推定全国开放；按城市核对自贸区／海南试点目录。
  • 将负面清单与 2025 年鼓励目录（2026-02-01 施行）配对，定位优惠。
  • 每年重新筛查行业——清单持续修订，进一步收窄为既定方向。
  • 以生效日为基线安排市场准入规划，但预期试点快于全国文本。

来源

相关阅读

  • 参见：2026 年外资准入负面清单：主要变化解读
  • 参见：分行业外资限制速览地图
  • 参见：外资企业准入：审批与备案
Security Review / 安全审查

Investment and Data Security Review in China: The 2026 Compliance Matrix

  • The CAC’s Action Plan for Promoting High-Quality Development of Internet Enterprises (2026-2030), issued on 21 August 2026, commits to efficient implementation of data-export security assessments, standard contracts and certification, and to FTZ data-export negative lists and cross-border data service centres.
    中央网信办 2026 年 8 月 21 日印发《促进网信企业高质量发展行动计划（2026-2030 年）》，承诺高效实施数据出境安全评估、个人信息出境标准合同、个人信息出境认证等制度，支持自贸区发布数据出境负面清单、设立数据跨境服务中心。
  • The first batch of data-export security assessment results, mostly issued in 2023, are expiring in 2026: extensions must be requested within 60 working days before expiry, meeting six conditions including a cap of 20% growth over three years.
    首批数据出境安全评估结果（多在 2023 年出具）2026 年集中到期：须在有效期届满前 60 个工作日内申请延期，同时满足六项条件（含未来三年出境数量增幅不超过原准予数量的 20%）。
  • Foreign investment security review is controller-piercing and substance-over-form: the April 2026 prohibition of a foreign takeover of a Chinese-founded AI company illustrates that review extends to indirect transactions over Chinese-controlled assets.
    外商投资安全审查遵循穿透式、”实质重于形式”原则：2026 年 4 月对一起收购中国背景 AI 公司交易的禁止投资决定显示，审查延伸到涉及中国控制资产的间接交易。
  • Under the Foreign Investment Security Review Measures (effective January 2021), investment in military-related or critical sectors (important IT and internet products, key technologies, etc.) that obtains de facto control must be declared before implementation.
    依《外商投资安全审查办法》（2021 年 1 月施行），投资军工及关系国家安全的重要信息技术和互联网产品与服务、关键技术等重要领域并取得实际控制权的，应在实施投资前主动申报。
  • The four-part review matrix for foreign companies covers: foreign investment security review, cyber-security review (for platforms with over one million users going offshore), data-export security assessment and the network data security risk assessment regime.
    外资企业面对的”四大安全审查”矩阵包括：外商投资安全审查、网络安全审查（超 100 万用户平台赴国外上市）、数据出境安全评估与网络数据安全风险评估制度。
  • For foreign-invested companies, the 2026 checklist is to audit assessment expiry dates, map data flows against the three export routes, confirm security-review thresholds for any offshore listing or sensitive acquisition, and monitor CAC and NDRC implementation guidance.
    对外资企业，2026 年合规清单是：核查评估到期日、对照三条出境路径映射数据流、确认境外上市或敏感并购的安全审查门槛、跟踪网信办与发改委实施指引。

Investment and Data Security Review in China: The 2026 Compliance Matrix | 中国投资与数据安全审查：2026 年合规矩阵

Why this matters now

Two developments in 2026 concentrate the security-review agenda for foreign-invested companies. First, on 21 August 2026 the Office of the Central Cyberspace Affairs Commission (CAC) issued the Action Plan for Promoting High-Quality Development of Internet Enterprises (2026-2030), which commits to efficiently implementing data-export security assessments, personal-information-outbound standard contracts and personal-information-outbound certification, supporting FTZs in issuing data-export negative lists and encouraging data cross-border service centres. Second, the first batch of data-export security assessment results — mostly issued in 2023 — are expiring in 2026, forcing companies through the extension or re-application window. Separately, the April 2026 decision by the Foreign Investment Security Review Working Mechanism Office (NDRC) to prohibit a foreign acquisition of a Chinese-founded AI company demonstrates the reach of foreign investment security review. This article maps the four-part compliance matrix and the practical calendar.

The four-part review matrix

For a foreign-invested company, four regimes intersect. First, foreign investment security review under the Measures (NDRC and MOFCOM Order, effective 18 January 2021): investment in military-related fields, or in critical sectors — important agriculture, energy and resources, major equipment manufacturing, critical infrastructure, key transport services, important culture products, important IT and internet products and services, important financial services, key technologies and other important fields — that obtains actual control must be declared before implementation. Review is substance-over-form and controller-piercing: the April 2026 prohibition decision applied to a transaction between two foreign parties because the underlying assets, technology and data originated in China. Second, cyber-security review under the Cyber Security Review Measures (2021): network platform operators holding data of more than one million users must declare before going public abroad. Third, data-export security assessment under the Data Export Security Assessment Measures and the Promoting and Regulating Cross-Border Data Flow Provisions: critical information infrastructure operators, important data exports, and personal-information exports above volume thresholds must pass assessment. Fourth, the network data security risk assessment regime introduced by the Measures on Network Data Security Risk Assessment (effective 20 August 2026): important data processors must conduct an annual assessment.

The 2026 expiry wave and the extension conditions

The first batch of data-export security assessment results was mostly issued in 2023. Under Article 9 of the Provisions, the assessment result is valid for three years from issuance; the validity period was extended from two to three years by the March 2024 Provisions. Companies wishing to continue exporting must apply for an extension within 60 working days before expiry, through the provincial cyberspace administration to the national office. Six conditions must all be met: the purpose and scope of data export are unchanged; the data processor and overseas recipient are unchanged; for personal information, the number of individuals involved over the next three years does not exceed 20% of the amount approved in the original assessment; for important data, the volume growth over three years does not exceed 20%; the legal documents with the overseas recipient comply with Article 9 of the Measures; and no major data-security incident occurred during the past three years. Where any condition fails, the company must re-apply, a longer process.

The CAC action plan and data-flow facilitation

The CAC’s 2026-2030 action plan, issued 21 August 2026, signals both enforcement and facilitation. It commits to guiding internet enterprises to establish sound data-security compliance systems, efficiently implementing the three data-export routes, supporting FTZs in issuing data-export negative lists under the national classification system, organising industry-specific guidelines on cross-border data flows, and encouraging regions to set up data cross-border service centres. For foreign-invested companies, this means the three-route framework will be administered more efficiently, but compliance obligations are not relaxed — the plan also calls for cracking down on data-related violations.

Practical calendar for foreign companies

First, locate every data-export security assessment notice and check its issue date; calendar the 60-working-day extension window before expiry. Second, run the six-condition self-check for extension eligibility; where growth will exceed 20% or other conditions fail, budget for a full re-application. Third, map data flows against the three routes — security assessment, standard contract (with provincial filing within 10 working days of execution) and certification — and confirm which applies to HR data, global-system access and SaaS operations. Fourth, for any offshore listing or acquisition of a sensitive-sector target, assess cyber-security review and foreign investment security review thresholds before signing. Fifth, monitor CAC Q&A releases (the July 2026 Q&A clarified extension conditions) and NDRC guidance. Sixth, for important-data processors, complete the first annual network data security risk assessment under the regime effective 20 August 2026.

Compliance notes

Extension is not automatic: approval is discretionary and re-application is materially longer, so start compliance self-audits six months before expiry. The 20% growth cap is measured against the amount approved in the original assessment, not current volumes, and companies should keep annual data-transfer ledgers. Foreign investment security review applies to indirect and “substance-over-form” transactions; the April 2026 prohibition shows that Chinese-founded, Chinese-asset AI companies remain in scope even after restructuring abroad. Finally, the security-review landscape is evolving — the CAC plan and pending sectoral data-classification catalogues will reshape the map, so treat 2026 as a year for proactive mapping rather than reactive compliance.

中国投资与数据安全审查：2026 年合规矩阵

为什么当下重要

2026 年两项动态把安全审查议程推到外资企业面前。其一，2026 年 8 月 21 日，中央网络安全和信息化委员会办公室印发《促进网信企业高质量发展行动计划（2026-2030 年）》，承诺高效实施数据出境安全评估、个人信息出境标准合同、个人信息出境认证等制度，支持自贸区发布数据出境负面清单，鼓励设立数据跨境服务中心。其二，首批数据出境安全评估结果（多在 2023 年出具）2026 年集中到期，迫使企业进入延期或重新申报窗口。此外，2026 年 4 月外商投资安全审查工作机制办公室（国家发展改革委）对一起外国企业收购中国背景 AI 公司的交易作出禁止投资决定，展示了外商投资安全审查的穿透范围。本文梳理四大审查矩阵与实务时间表。

四大审查矩阵

对外资企业，四个制度相交织。其一，《外商投资安全审查办法》（国家发展改革委、商务部令，2021 年 1 月 18 日施行）下的外商投资安全审查：投资军工领域，或投资关系国家安全的重要农产品、重要能源和资源、重大装备制造、重要基础设施、重要运输服务、重要文化产品与服务、重要信息技术和互联网产品与服务、重要金融服务、关键技术等重要领域并取得实际控制权的，须在实施投资前申报。审查”实质重于形式”且穿透式：2026 年 4 月禁止决定适用于两个境外主体之间的交易，因为底层资产、技术与数据源于中国。其二，《网络安全审查办法》（2021 年修订）下的网络安全审查：掌握超 100 万用户个人信息的网络平台运营者赴国外上市前须申报。其三，《数据出境安全评估办法》及《促进和规范数据跨境流动规定》下的数据出境安全评估：关键信息基础设施运营者、重要数据出境、超数量阈值个人信息出境须通过评估。其四，《网络数据安全风险评估办法》（2026 年 8 月 20 日施行）确立的网络数据安全风险评估制度：重要数据处理者须开展年度评估。

2026 到期潮与延期条件

首批数据出境安全评估结果多在 2023 年出具。依《规定》第九条，评估结果自出具之日起 3 年内有效（2024 年 3 月《规定》将有效期由 2 年调整为 3 年）。企业继续出境的，须在有效期届满前 60 个工作日内，经所在地省级网信部门向国家网信部门提出延期申请。六项条件须同时满足：数据出境目的、范围未变化；数据处理者与境外接收方未变化；出境个人信息的，未来三年涉及自然人数量增幅不超过原评估结果准予过去三年出境数量的 20%；出境重要数据的，未来三年出境数据规模增幅不超过 20%；与境外接收方订立的法律文件符合《办法》第九条；过去三年按评估结果合规开展且未发生重大数据安全事件。任一项不满足即须重新申报，周期明显更长。

网信办行动计划与数据流动便利化

网信办 2026-2030 行动计划（8 月 21 日印发）释放执法与便利双重信号。它承诺引导网信企业建立健全数据安全合规体系，高效实施三条数据出境路径，支持自贸区在国家数据分类分级保护制度框架下制定发布数据出境负面清单，组织重点行业制定网络数据跨境流动合规指引，鼓励有条件地区设立数据跨境服务中心。对外资企业，这意味着三条路径管理更高效，但合规义务并未放松——计划同时要求依法严厉打击涉数据违法犯罪活动。

外资企业实务时间表

其一，找出每份数据出境安全评估通知书并核对出具日期；在到期前把 60 个工作日延期窗口列入日历。其二，按六项条件自检延期资格；增长率将超 20% 或其他条件不满足的，为完整重新申报做预算。其三，对照三条路径——安全评估、标准合同（签署后 10 个工作日内省级备案）、认证——映射数据流，确认 HR 数据、全球系统访问与 SaaS 运营适用哪条。其四，任何境外上市或敏感行业标的收购，签署前评估网络安全审查与外商投资安全审查门槛。其五，跟踪网信办问答（2026 年 7 月问答已明确延期条件）与发改委指引。其六，重要数据处理者须在 8 月 20 日生效制度下完成首次年度网络数据安全风险评估。

合规提示

延期非自动：批准存在裁量空间，重新申报周期显著更长，建议在到期前 6 个月启动合规自检。20% 增幅上限以原评估结果准予的数量为基准而非当前数量，企业应留存逐年数据出境台账。外商投资安全审查适用于间接与”实质重于形式”的交易；2026 年 4 月禁止决定表明，中国创始、中国资产的 AI 公司即使在境外重组后仍在审查范围。最后，安全审查版图仍在演进——网信办行动计划与待出台的行业数据分类目录将重塑地图，2026 年应视为主动映射之年而非被动合规之年。

Sources