2021年7月23日，商务部发布《海南自由贸易港跨境服务贸易特别管理措施（负面清单）》（以下简称《海南跨境服贸负面清单》或负面清单），其中列出针对境外服务提供者的11个门类70项特别管理措施，自2021年8月26日起施行。负面清单体现了目前中国内地在跨境服务贸易领域最高水平的对外开放，在某些领域的开放水平甚至超过了中国当初的入世承诺。为帮助大家更好了解有关背景及具体措施的实际意义，从今天起推出系列政策解读，内容摘自国务院新闻办公室举行的海南自由贸易港跨境服务贸易负面清单发布会。

On July 23, 2021, Ministry of Commerce issued the "Special Administrative Measures for Cross-border Trade in Services in Hainan Free Trade Port(Negative List)" (hereinafter referred to as Negative List), which defines 70 special management measures in 11 categories for overseas service providers and will come into effect from August 26, 2021. The negative list reflects the highest level of opening up in the cross-border service trade field in mainland China, and the level of openness in some areas even exceeds China's original WTO commitments. To help you better understand the background and the practical significance of the specific measures, a series of policy interpretations shall be provided, based on contents from the press conference on the Hainan Free Trade Port's Cross-border Trade in Services Negative List held by the State Council Information Office.

一、制定出台负面清单的相关背景和主要考虑是什么？

1.What are the background and main considerations for formulating the Negative List?

经党中央、国务院同意，7月23日，商务部印发第3号令，发布《海南跨境服贸负面清单》。出台该清单是党中央、国务院作出的重要部署。习近平总书记在第三届中国国际进口博览会开幕式主旨演讲中强调，中国将有效发挥自贸试验区、自由贸易港引领作用，出台跨境服务贸易负面清单。李克强总理在政府工作报告中提出，出台跨境服务贸易负面清单。

With the approval of the Party Central Committee and the State Council, MOFCOM issued Order No.3 on July 23 which announced the Negative List. This is a key decision made by the Party Central Committee and the State Council. In his keynote speech at the opening ceremony of the Third China International Import Expo, General Secretary Xi Jinping emphasized that China would effectively play the leading role of the Pilot Free Trade Zone and Free Trade Port, and introduce a negative list for cross-border trade in services. In his government work report, Premier Li Keqiang proposed to issue a negative list for cross-border trade in services.

为做好贯彻落实工作，商务部会同海南省人民政府和45个相关部门，全面梳理国际国内跨境服务贸易开放水平，研究参照高标准国际经贸规则，深入开展实地调研，前后历时一年多，制定出台了《海南跨境服贸负面清单》。

In order to prepare the Negative List, MOFCOM,together with the People’s Government of Hainan Provincial and 45 relevant departments, spent more than one year comprehensively examining the openness level of international and domestic cross-border trade in services, referring to high-standard international economic and trade rules, and conducting in-depth field investigations before formulating and issuing the Negative List.

当前，面对严峻复杂的国内国际形势，中国坚持深化改革、扩大开放的方向不变、决心不变，不断提升贸易投资自由化水平。比如说在货物贸易方面，多次自主降低关税总水平，取消或简化非关税措施，货物贸易自由化程度持续提高。又比如在投资方面，出台并且持续压减外商投资准入负面清单，清单之外的领域，按照内外资一致原则实施管理，自由化水平不断提升。但是在跨境服务贸易方面，目前在签署的自贸协定中作出的开放安排还是比较有限的，只是在部分领域。总体跨境服务贸易开放水平和我国加入世贸组织承诺水平相比，进展不是非常大。

At present, in face of the severe and complex domestic and international situations, China adheres to the direction and determined of deepening reforms and opening wider to the outside world, and continuously improves the liberalization level of trade and investment. For example, in the area of trade in goods, China has lowered the overall level of tariffs several times, and cancelled or simplified non-tariff measures, resulting in continuously increasing the liberalization of trade in goods. In addition, in the area of investment, the negative list for foreign investment has been introduced and continuously reduced. The areas outside the list are managed in accordance with the principle of consistency between domestic and foreign investment, and the level of liberalization is increasing. However, in terms of cross-border trade in services, the opening-up arrangements as defined in the signed free trade agreements(FTAs)are still limited in some areas. Compared with the level of China’s commitments when joining the WTO, the overall opening-up level of cross-border trade in services has not made much progress.

除去年以外，近十年来，全球跨境服务贸易年均增速是货物贸易平均年增速的两倍。随着技术进步，服务贸易特别是跨境服务贸易的发展潜力将得到进一步激发。我们认为，未来的跨境服务贸易将成为全球贸易的关键驱动因素。《海南跨境服务贸易负面清单》是国家在跨境服务贸易领域公布的第一张负面清单。和过去在某一些具体行业、比较零碎地作出一些服务业的开放安排不相同的是，《海南跨境服贸负面清单》明确列出针对境外服务提供者的11个门类70项特别管理措施，把这些作为负面的管理措施列出来。凡是在清单之外的领域，在海南自由贸易港内，对境内外服务提供者在跨境服务贸易方面一视同仁、平等准入，可以说开放度、透明度、可预见度都大大提高。这个清单可以说是对服务贸易管理模式的重大突破，是一项制度型开放安排，有助于推动服务贸易自由化，提升我国整体开放水平，将更好的作用于构建新发展格局。

Except for the year of 2020, the average annual growth rate of global cross-border trade in services has been twice that of trade in goods in the past decade. With technological progress, the development potential of trade in services, especially cross-border trade in services, will be further realized. We believe that cross-border trade in services in the future will be a key driver of global trade. The Negative List is the first such list unveiled at the national level in the field of cross-border trade in services. Different from the previous fragmented opening-up arrangements for certain service industries, the Negative List clearly lists 70 special management measures in 11 categories for overseas services providers, which are listed as negative management measures. For those industries not put on the list, domestic and overseas services providers shall have a level playing field and enjoy equal market access in Hainan, which will ensure greater openness, transparency and predictability. This list which can be said to be a major breakthrough in the management model of trade in services is an institutional arrangement for opening-up. It will help promote the liberalization of trade in services, enhance the country’s overall opening-up levels,and contribute to the building of a new development pattern.

在制定《海南跨境服贸负面清单》一年多的过程中，有四点一直考虑的内容：

During more than one year of preparing the Negative List, the following four points have been considered:

一是对接高标准国际经贸规则。负面清单模式是国际高标准自贸协定在跨境服务贸易领域作出开放安排的一个主要模式。在此之前，自贸协定对服务贸易的规定，包括WTO对服务贸易的规定都是正面清单，但是今天高标准的自贸协定采取的主要方式是负面清单。目前，我国加入世贸组织相关的减让表，以及我们国家签署的自贸协定，在跨境服务贸易领域采取的都是正面清单方式作出承诺，去年签署的《区域全面经济伙伴关系协定》（RCEP协定）之中，我们也是采用正面清单，但是成员们承诺，要在RCEP生效之后6年之内把正面清单转为负面清单。

1.Benchmarking with high-standard international economic and trade rules. Negative lists are a major pattern for cross-border trade in services in high-standard international FTAs. Previously, in FTAs on trade in services, including WTO provisions on trade in services, were all positive lists. But the main way adopted by today’s high-standard FTAs are negative lists. At present, in China’s schedules of concessions for entry into the WTO and the FTAs China has signed, positive lists are used in the field of cross-border trade in services. In the Regional Comprehensive Economic Partnership Agreement(RCEP)signed last year, we also adopt positive lists. But members to the agreement have promised to change the positive lists to negative ones within six years after the RCEP took effect.

《海南跨境服贸负面清单》，对接国际高水平的经贸规则，以负面清单的方式对跨境服务贸易开放作出安排，可以说是对现有服务贸易管理模式的一项重要改革，也是中国政府推进“放管服”改革的一项具体实践。

The Negative List is in line with high-level international economic and trade rules and makes opening-up arrangements for cross-border trade in services in the form of a negative list. It can be said to be a key reform for the management model of the existing trade in services and also a specific practice of the Chinese government to promote the reform of “streamline the government, delegate power, and improve government services”.

二是在编制过程中，始终考虑作出主动开放安排。《海南跨境服贸负面清单》放宽了服务贸易领域内的准入限制，在专业服务、交通服务、金融等领域作出了水平较高的开放安排。这个开放度不是双边协议的要求，而是我们自己主动而为，它超过了我们入世的承诺，也高于目前我们已经生效的主要自贸协定相应领域的开放水平。

2.Making proactive opening-up arrangements during the preparation process. The Negative List lowers market entry in services and makes higher-level opening-up arrangements in sectors including professional services, transportation services, and financial services. Such a higher-level opening-up is not required by any bilateral agreements; instead, we take the initiative to do so. This goes beyond China’s commitments for WTO accession and its main free trade agreements(FTAs)that have entered into force in corresponding areas.

三是制定负面清单时，体现了海南的特点。旅游业、现代服务业、高新技术产业是海南的三大主导产业，《海南跨境服贸负面清单》立足新发展阶段、贯彻新发展理念，围绕更好地发挥海南自由贸易港在构建新发展格局中的重要作用，作出了放开外籍游艇进出海南自由贸易港申请引航限制等一系列开放措施，这将有助于加快培育具有海南特色的合作竞争新优势，促进海南自由贸易港高质量发展。

3.Reflecting the characteristics of Hainan during the preparation. Tourism, modern service, and high technology are the three leading sectors in Hainan. The Negative List is based on the new stage of development, designed to implement new development concept, and intended to focus on preferably playing the role of Hainan Free Trade Port(FTP)in building a new development pattern. It includes a series of opening-up measures, such as removing access restrictions on foreign yachts applying for pilotage in and out of Hainan Free Trade Port. This will help accelerate the development of new advantages in cooperation and competition with Hainan characteristics, and promote the high-quality development of Hainan Free Trade Port.

四是统筹发展和安全。贯彻落实总体国家安全观，坚持底线思维，强化风险意识，实施高水平开放的同时，《海南跨境服贸负面清单》保留了必要的特别管理措施。清单出台以后，海南省将切实承担主体责任，加快建立健全配套的管理制度，加强跨境服贸统计监测预警，将会牢牢守住不发生区域性、系统性风险的底线，各有关行业主管部门以及商务部将加强支持指导，根据职责做好各自领域内的监管工作。

4.Coordinating development and security. To implement the holistic view of national security, adhere to the “bottom line” thinking, and strengthen risk awareness, the Negative List contains necessary special management measures while implementing a high-level opening-up. After the release of the Negative List, Hainan Province will earnestly assume the principal responsibility, accelerate the establishment of a sound supporting management system, strengthen the monitoring, early warning, and statistics of cross-border trade in services,and firmly hold the bottom line of no regional or systemic risks. All relevant competent industrial authorities and MOFCOM will provide stronger support and guidance and effectively supervise their respective fields according to their responsibilities.

下一步，商务部、海南省和有关部门将积极推进《海南跨境服贸负面清单》的落地实施，及时总结评估经验做法，为在下一步自贸试验区以及后续全国实施跨境服贸清单管理制度探索路径、积累经验。

In the next step, MOFCOM, Hainan Province, and relevant departments will actively promote the implementation of the Negative List, and timely summarize and evaluate experience and practices, in order to explore a path and accumulate experience for the implementation of the list management system of cross-border trade in services in free trade zones and subsequently across the country.

二、作为继外商投资准入负面清单之后的又一项重大的制度型开放举措，发布《海南自由贸易港跨境服贸负面清单》对我国新发展格局下全面扩大开放将会有哪些重大的意义？又会起到哪些关键的作用？

2.As another major institutional opening-up measure after the negative list for foreign investment, what is the significance of issuing the Negative List in the comprehensive expansion of opening-up under the new development pattern of China? What key roles will it play?

出台《海南跨境服贸负面清单》是在新发展格局下，我们国家主动推动高水平制度型开放的一项重要举措，对于推动海南自由贸易港高质量发展，对于我们国家在更大范围内扩大开放进行压力测试，以及对于我们国家建设更高水平开放型经济都具有重要的意义。就推动海南自贸港高质量发展这个方面来说，它是一项重要的措施。

The Negative List is an important measure for our country to proactively promote high-level institutional opening-up under the new development pattern. It will have far-reaching implications for promoting the quality of the Hainan Free Trade Port, conducting stress tests for wider opening-up in the country as well as building an open economy at a higher level. The Negative List is key to the high-quality development of Hainan Free Trade Port.

服务业是海南的一个主导产业，在海南省GDP中，服务业占到60％以上的比重。最近的统计表明，服务业发展对海南经济的增长贡献率达到95.8％。所以《海南跨境服贸负面清单》的实施将推动海南服务业的开放发展，如在现代服务业方面，这些清单应该说将会起到很重要的作用。《海南跨境服贸负面清单》在现代服务业里面的航运、金融这些方面作出了多项开放安排。它会有助于海南引进新的服务理念和服务模式，丰富服务供给，提升现代服务业的发展水平和竞争力。同时，《海南跨境服贸负面清单》在法律服务、市场调查等商业服务领域内也做了提升，并且在教育文化配套领域也提升了开放水平，所以说在现代服务业、商业服务等一些配套的服务领域内，服务贸易的负面清单都作出了进一步开放的安排，这会有利于海南打造法治化、国际化、便利化的营商环境，集聚全球创新要素资源，提升自由贸易港的建设质量。

The service sector plays a leading role in Hainan, and the service sector accounts for more than 60%of the province’s GDP. Recent statistics show that the service sector accounts for 95.8% to Hainan’s economic growth. Therefore, the implementation of the Negative List will promote the opening-up and development of Hainan’s service sector. For example, in terms of the modern service sector, these lists should play a very important role. The Negative List contains a number of opening-up arrangements in the modern service sector, such as shipping and finance. The Negative List will help Hainan introduce new service concepts and service models, diversify service supply, and enhance the development level and competitiveness of its modern service sector. At the same time, the Negative List also improves the level of opening-up in commercial services such as legal services and market research and in supporting areas such as education and culture. That is, the Negative List contains arrangements for further opening-up in the fields of modern services, commercial services, and some supporting services. This will help Hainan create a law-based, international, and convenient business environment,gather global innovative elements and resources, and improve the construction quality of the Free Trade Port.

《海南跨境服贸负面清单》还有助于我们国家在更大范围内开展对外开放的压力测试。海南自由贸易港作为我们国家主动开放的重要平台，推出全国首张跨境服贸负面清单，它属于我们自主决定的国内管理规定，有助于以风险防控为底线，加大开放压力测试的力度，发挥先行先试的示范作用。我们下一步还要在自贸试验区以及后续要在全国范围内实施跨境服贸负面清单的探索，海南的做法会为下一步更大范围的开放探索路径、积累经验，也为我们国家参与或者影响国际经贸规则打下坚实的基础。

The Negative List also helps to carry out stress tests for wider opening-up in the country. China has introduced this Negative List, which is the country’s first such negative list, for the Hainan Free Trade Port. The Port is a key platform for China to proactively open up. It is of China’s own choice and helps the country increase the intensity of opening-up and play the exemplary role of pioneering and testing while taking risk prevention and control as the bottom line. In the next step, we will explore new possibilities of the negative lists for cross-border trade in services in the pilot free trade zone and subsequently across the country. Hainan’s practice will help explore a path and accumulate experience for wider opening-up in the next step, and also lay a solid foundation for China to participate in or influence international economic and trade rules.

第三个意义体现在是我们国家建设更高水平开放型经济的重要抓手。在全球范围内除去年外过去的十年中，跨境服务贸易增长速度是货物贸易增长速度的两倍，现在全球货物出口大概是18万亿美元，而服务贸易的出口大概是5万亿美元，服务贸易的增长速度是货物贸易增长速度的2倍。特别是信息技术的进步、数字经济的发展，使得今天还不能够进行贸易的一些服务业，在未来就变成了可以进行贸易的服务领域，它就会打破一些今天空间方面的局限，未来就不需要在国外设立商业存在，就可以进行跨境的服务交易。去年尽管受到疫情很大的影响，我们国家的跨境服务贸易进出口额达到了6617亿美元，这个金额名列全球第二，和全球第一还是有相当大的差距。

Additionally, the Negative List provides a key means for China to build a higher-level open economy. Globally, except for the year 2020, the average annual growth rate of cross-border trade in services has been twice that of trade in goods in the past decade. Now the global export of goods is about US$18 trillion while the export of trade in services is about US$5 trillion, and the growth rate of trade in services is twice that of trade in goods. In particular, the advancement of information technology and the development of the digital economy will have enabled some service sectors to be traded in the future, which we cannot do today. This will break some of today’s spatial limitations. In the future, it will no longer need the commercial presence in foreign countries to conduct cross-border service transactions. Despite the pandemic in 2020, China’s import and export volume of cross-border trade in services reached US$661.7 billion, ranking second in the world, but with a considerable gap with the world’s largest service trader.

所以，海南自由贸易港实施跨境服贸负面清单，有利于提高我们国家总体服务业的对外开放水平，而且通过引进境外的高水平服务提供者来参与国内的竞争，可以提升国内的大循环效率。另外一方面，我们也可以利用强大的国内市场，联通集聚全球的高端人才、先进技术、数据等一些优质生产要素资源，推动国内国际双循环的相互促进，服务构建新发展格局这个大的目标。所以海南跨境服贸清单今天的意义和未来的意义都是十分重要的。

Therefore, the implementation of Negative List FTP is conducive to improving the opening-up level of China’s overall service sectors. By introducing high-level service providers from abroad into domestic competition, we can improve the efficiency of the “domestic cycle”. On the other hand, we can take advantage of our strong domestic market, connect with and pull together high-quality production factor resources such as high-end talents, advanced technology, and data from around the world, promote the mutual promotion of domestic and international dual-cycle, and help achieve the grand goal of building a new development pattern. Therefore,  the Negative List is both significant today and tomorrow.