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，我们推出了系列政策解读，今天带来跨境服务贸易负面清单政策解读的第2期。

2021年7月23日, 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, We have published a series of policy interpretations. Today we bring the third part of the Trade Liberalization and Facilitation policy interpretation. Today we bring the second part of the Hainan Free Trade Port's Cross-border Trade in Services Negative List.

三、《海南跨境服务贸易负面清单》涉及跨境交付等多种模式的开放，可能会产生一定的风险。对于开放后的风险监管是否有进一步的考虑和安排？

3. The Negative List involves the openess of various modes such as cross-border delivery, which may bring some risks. Are there any further considerations and arrangements for risk supervision after the opening-up?

国家要求越是开放，越要重视安全，统筹好发展和安全两件大事，增强自身竞争能力、开放监管能力、风险防控能力。为保障开放举措的安全实施，稳步推进海南自由贸易港建设，重点要做好监管和风险防控两方面的工作。

The more open China is, the more attention we must pay to security. By coordinating development and security, China can better strengthen competitiveness, supervision of opening, and risk prevention and control. In order to implement opening-up measures in a secure manner and steadily advance the FTP building, supervision and risk prevention and control should be focused on as required.

监管方面。清单明确了海南自由贸易港跨境服务贸易的不符措施，也就是准入准营门槛。对于清单内的事项，按照现行管理办法进行管理即可。对于清单外事项，按照内外一致的原则实施管理。对涉及文化、金融、电信、教育等敏感领域的事项，需要严格管理。因此，需要建立管理制度，明确责任。对于清单外新作出的开放举措，我们将安排省级相关行业主管部门制定管理办法。我们将在商务部和有关行业主管部门的支持指导下，尽快制定出台相关的管理制度。

Regulatory issues. The Negative List determines the inconsistency measures for cross-border trade in services in the Hainan Free Trade Port, that is, the threshold of access and operation. The items in the Negative List can be managed in accordance with the current management methods. The items outside the Negative List are managed in accordance with the principle of consistent treatment between domestic and overseas organizations. Sensitive sectors such as culture, finance, telecommunications, and education need to be strictly managed. Therefore, it is necessary to establish a management system and define responsibilities. For newly formulated opening-up measures not included in the Negative List, we will arrange the provincial-level competent industrial authorities to formulate management measures. With the support and guidance of MOFCOM and relevant competent industrial authorities, we will formulate and introduce relevant management regulations as soon as possible.

风险防控方面。为切实防范海南自由贸易港建设中可能存在的风险，确保各类风险“管得住”。去年，我省设立了13个风险防控专项工作组，今年又增加了2个，增加到15个，负责统筹协调各专项领域重大风险防控工作，其中就包括服务贸易风险防控专项工作组。一年多来，专项工作组制定了工作方案，建立了会商机制，从服务贸易中的人员、资金、信息三个要素出发梳理风险点，并相应制定了防控措施。另外，我们注重用科技手段提升风险防控能力。我省特有的海南社会管理信息化平台整体进入了实战化运行，对人流、物流、资金流实行24小时监控，构建起近海、岸线、岛内的三道防控圈。到目前为止，海南全省未发生和出现系统性重大风险。

Risk prevention and control. We will take effective measures to prevent possible risks in the construction of the Hainan FTP and ensure that all kinds of risks can be “effective and efficient control”. Last year, Hainan Province set up 13 special working groups for risk prevention and control. This year, the number of the working groups increased by 2 to 15. They are responsible for coordinating major risk prevention and control in various special fields, including the special working group of risk prevention and control for trade in services. Over the past year or so, the special working group has formulated work plans, established a consultation mechanism, identified risk points in human resources, capital, and information in the service trade, and formulated prevention and control measures accordingly. Additionally, we focus on using technological methods to improve our risk prevention and control capabilities. Our unique Hainan Social Management Information Platform, which has entered practical operation as a whole, monitors the flow of people, logistics, and capital 24 hours a day. This helps create a three-layer prevention and control circle consisting of offshore waters, coastlines, and islands. So far, no systemic major risks have occurred or appeared in Hainan Province.

下一步，我们将进一步发挥服务贸易风险防控专项工作组的作用，坚持底线思维，切实防范服务贸易领域的重大风险。同时将做好统计监测工作，及时监测分析我省跨境服务贸易运行情况，评估清单的实施效果。

In the next step, we will further give full play to the role of the special working group for risk prevention and control of trade in services, adhere to bottom-line thinking, and effectively prevent major risks in the field of trade in services. Simultaneously, we will implement statistical monitoring, monitor and analyze the operation of Hainan’s cross-border trade in services in a timely manner, and evaluate the effectiveness of the implementation of the Negative List.

四、《海南跨境服务贸易负面清单》具有较高的开放水平具体情况是什么？

4.The Negative List provides a higher-level opening-up. What is the specific situation about it?

《海南跨境服贸负面清单》透明度比较高，开放度比较大，它是对现有服务贸易管理模式的重要改革，有助于提高服务业对外开放。有关情况可以与中国入世时的承诺比较一下。

The Negative List provides greater transparency and openness. It’s an important reform of the management model for the existing trade in services and will help increase the openness of the service sector. We can do some comparisons with the commitments China made when joining the WTO.

第一方面，《海南跨境服贸负面清单》和加入世贸组织时在服务业方面的承诺进行对比。中国入世时，服务业承诺是采用正面清单的方式，大家也可以在网上查中国在哪些方面作了承诺。世贸组织对服务业作了他们自己的分类，一共有160个分部门，在160个分部门里面，《海南跨境服贸负面清单》在120个左右的分部门，开放的水平都超过了WTO的承诺。所以大家可以看一看，160个分部门，海南有约120个超过了我们入世的承诺。具体来说，我们入世的时候，160个分部门中，中国在100个分部门里作了承诺，说我们要开放，还有60个分部门我们没有承诺说要开放。在100个作了承诺我们要开放的分部门里面，《海南跨境服贸负面清单》有70多个分部门开放度超过当时我们的承诺。

Firstly, we can compare the Negative List with China’s commitments in the service sector when joining the WTO. When joining the WTO, China adopted positive lists in its commitments regarding the service sector. These commitments are publicly available online. The WTO classified the service sector into 160 sub-sectors. Of the 160 sub-sectors, the level of openness of about 120 ones in the Negative List exceeds the commitments to the WTO. Specifically, when joining the WTO, China committed to opening up 100 sub-sectors, but didn’t do so with the other 60 sub-sectors. Out of the 100 sub-sectors, the level of openness of more than 70 ones in the Negative List exceed our commitments at that time.

举几个例子，在法律服务分部门里，我们在入世承诺里不包括中国的法律服务，外国的服务提供者不能提供中国法律方面的服务。而《海南跨境服贸负面清单》明确说了，境外律师事务所驻海南的代表机构，可以从事部分涉及海南的商事非诉讼法律事务，开放度是高于我们入世承诺的。在教育服务领域内，我们国家入世的承诺是境外个人教育服务提供者要到中国境内提供教育服务必须具有学士或者以上学位，而且还要有相应的专业职称或者证书，并且要具有两年专业工作经验。在《海南跨境服贸负面清单》里，我们取消了个人教育服务提供者需要有两年专业工作经验的限制。

For example, China didn’t commit to opening up the sub-sector of legal service when joining the WTO, and overseas service providers cannot provide Chinese legal services. But the Negative List stated that the representative offices of foreign law firms in Hainan can engage in some commercial non-litigation legal affairs involving Hainan. The degree of openness is higher than our commitments to the WTO. In the field of education services, according to China’s commitment to the WTO, in order to provide education services in China, foreign individuals educational services providers must have a bachelor’s degree or above, have corresponding professional titles or certificates and at least have two years of professional experience. In the Negative List, the restriction of two-year professional experience is lifted.

在入世承诺的时候，我们有60个分部门没有作出承诺，我们没有说要开放，但是在《海南跨境服贸负面清单》中，有40多个分部门我们是做了开放。举几个例子，在市场调研服务分部门里面，入世的时候没有承诺，但是《海南跨境服贸负面清单》里面就规定了，境外服务提供者经过资格认定取得涉外调查许可证之后，就可以进行市场调查。再一个例子，在兽医服务分部门里，入世时我们也没有作出承诺，但是《海南跨境服贸负面清单》取消了境外个人不得申请参加兽医资格考试的限制。这是和我们加入世贸时的承诺进行比较，可以看出《海南跨境服贸负面清单》开放的领域更宽。

When joining the WTO, China did not commit to opening up the other 60 sub-sectors. But, of these 60 sub-sectors, in the Negative List, China makes opening-up arrangements for more than 40 sub-sectors. For example, China also did not commit to opening up the sub-sector of market research services at the time of WTO accession. But according to Negative List, overseas service providers are allowed to conduct market research after obtaining a foreign-related investigation license through qualification verification. Neither did China commit to opening up the sub-sector of veterinary services when joining the WTO. But the Negative List lifts the restriction on foreign individuals to apply for the veterinary qualification examination. By comparing with China’s WTO commitments, we can see that the Negative List opens up wider areas.

再对比自贸协定，我们已经和26个国家、地区或者经济体签署了19个自贸协定，可以说《海南跨境服贸负面清单》超过了绝大部分我们签署的自贸协定在服务贸易方面的开放水平。比如说以RCEP为例，160个分部门中，《海南跨境服贸负面清单》在110多个分部门里面，开放水平超过了RCEP里中国所作出的承诺。比如在空运支持服务分部门里，中国在RCEP协定里没有作出承诺，中国在入世时也没有作出承诺，但是在《海南跨境服贸负面清单》里取消了境外服务提供者不得从事航空气象服务的限制。还比如说，在城市规划分部门里，中国在RCEP里，对于其中的自然人移动模式没有作出承诺，但是《海南跨境服贸负面清单》取消了境外个人不得申请参加注册城乡规划师资格考试的限制。这也可以看出来，即便和RCEP相比，《海南跨境服贸负面清单》的开放水平都要高，因为这是我们主动开放的一个行为。

We can also compare the Negative List with FTAs. China has signed 19 FTAs with 26 countries, regions and economies. It can be said that the Negative List exceeds the openness of most of the FTAs we have signed in terms of trade in services. Take RCEP as an example. Among 160 sub-sectors, the Negative List provides a higher-level opening-up in more than 110 sub-sectors than China’s commitments to the RCEP. For example, China did not commit to opening up the sub-sector of air transport support services in the RCEP. Neither did China make such a commitment when joining the WTO. But in the Negative List, China allows overseas service providers to engage in aviation meteorological services. Additionally, in the sub-sector of urban planning,  China did not make a commitment about the movement mode of natural persons in the RCEP, but the Negative List removed the restriction on foreign citizens to apply for the qualification examination for registered urban and rural planners. We can see that the Negative List even provides a higher-level opening-up than the RCEP, which is because the Negative List is an act of our own initiative to open up.

五、清单对于海南自贸港建设，特别是服务贸易发展方面起到什么样的作用？会给企业和行业带来哪些利好？

5. What role this list will play in the construction of Hainan FTP, especially in the development of the trade in services? What benefits will it bring to related enterprises and industries?

从去年6月份《海南自由贸易港建设总体方案》发布以来，已经有140多项政策陆续出台。海南自由贸易港的建设取得了早期收获，企业也享受到了自贸港的政策红利。这次在全国又率先发布《海南跨境服务贸易负面清单》，是海南自由贸易港政策体系和制度创新的又一重要举措，将加快海南贸易自由化、便利化进程。与其他已经出台的自贸港政策一起，可以形成叠加效应，推动海南自贸港形成服务贸易发展的新优势，对行业和企业的发展都将产生积极的推动和促进作用。企业会在海南寻找到更多的商业机会，海南也会有更多的机会向境内外提供相关服务。

Since the release of the Master Plan for the Construction of Hainan Free Trade Port last June, more than 140 policies have been issued in succession. The construction of the Hainan FTP has achieved early harvest, and related enterprises have also enjoyed the policy dividend of the FTP. This time, the release of the Negative List, which is the first in China, is another important measure for the innovation in the policies systems and mechanisms of Hainan FTP, and will accelerate the process of trade liberalization and facilitation in Hainan. Together with other existing FTP policies, it can achieve a superposition effect to promote the Hainan FTP to build new advantages in the development of the trade in services, which will play a positive role in promoting the development of the industries and the enterprises. Enterprises will find more business opportunities in Hainan, and Hainan will also have more opportunities to provide related services at home and abroad.

举几个例子，比如在报关方面，原来规定只有在中国境内设立的法人方可从事报关业务，现在在海南自贸港取消设立法人的要求，也就是说，境外的报关企业现在不需要在海南注册法人实体，就可以直接开展报关业务。这样既提高了境外报关企业进入海南的自由度，也能有效降低企业的运营成本，同时，也有利于海南本地的外贸企业更加便捷地利用境外的优质服务，提升自身的国际竞争力。

In customs declaration, for instance, it was originally stipulated that only legal persons established in China could engage in customs declaration, but now the requirement for legal persons has been cancelled in the Hainan FTP, that is to say, overseas customs declaration entities can directly engage in customs declaration without legal entity registration in Hainan. On the one hand, it can improve the freedom of overseas customs declaration entities to enter Hainan and effectively reduce the operating costs of the entities; on the other hand, it is beneficial for local foreign trade firms in Hainan to make more convenient use of quality overseas services and enhance their international competitiveness.

又比如在船舶检验方面，原来规定外国船舶检验机构如果没有在中国设立验船公司，不得雇员或派员在中国开展船舶检验活动。这次在海南自贸港取消了设立验船公司的限制，外国船舶检验机构现在不需要在海南自贸港设立独立法人资格的验船公司，就可以直接派员或者派雇员在海南开展船舶检验业务。这也提升了运输往来的自由便利水平，有利于海南自贸港船舶运输企业获得更多更好的国际服务，同时也可以降低经营成本，为国际航运业企业的集聚发展提供新的便利条件。

For another example, in ship inspection, it was originally stipulated that foreign ship inspection institutions could not employ or send personnel for ship inspection activities in China if they did not set up ship inspection firms in China. This time, the restriction on setting up ship inspection firms has been cancelled in Hainan FTP. Now foreign ship inspection institutions can send personnel or employees directly for ship inspection in Hainan without setting up ship inspection firms with independent legal entity qualification in Hainan FTP. On the one hand, it can improve the freedom and convenience of transportation, which facilitates shipping enterprises in Hainan FTP to obtain more and better international services; on the other hand, it can reduce operating costs and provide new convenient conditions for the agglomeration and development of international shipping companies.

再比如，这次的清单当中取消了境外个人参加注册计量师、勘察设计注册工程师、资产评估师等资格考试限制。以前境外自然人不能在国内从事的行业，如今在海南自贸港内可以从业了，这也有助于吸引更多的外籍专业人士来海南就业，提升海南的国际化服务水平。如果这些人才作为引进人才，还可以享受到自贸港个人所得税优惠等一系列政策的叠加效应。

For a third example, the restrictions on overseas individuals taking qualification examinations for titles such as certified metrology engineers, certified engineers in survey and design, and asset appraisers have been removed from this list. Foreign natural persons can now engage in some industries in Hainan FTP which they were not allowed in China in the past, which will also help attract more foreign professionals to work in Hainan and improve the international service level of Hainan. If these talented people are introduced, they can also enjoy the superposition effect of a series of policies, such as preferential treatment of personal income tax in the FTP.

六、为何在海南率先推出跨境服务贸易负面清单“第一单”？

6. Why the ‘first’ negative list on cross-border trade in services is implemented in Hainan?

这次国家发布的首张跨境服贸负面清单选择在海南进行实施，主要有几个考虑：

There are several major considerations for Hainan being selected for the implementation of the first negative list for cross-border trade in services.

第一，从海南建设自由贸易港的实践需要看，习近平总书记指出，要对接国际高水平经贸规则，促进生产要素自由便利流动，高质量高标准建设自由贸易港。服务贸易的自由化、便利化是国际高水平自由贸易港的基本特征。在海南实施跨境服务贸易负面清单，将会推动以服务为载体的技术、资本、数据等生产要素资源自由便利的流动，对于推动建设具有较强国际影响力的高水平自由贸易港来说是非常重要的。

First, from the practical demands for the construction of a free trade port in Hainan, General Secretary Xi Jinping said that it is necessary to be aligned with the high-level economic and trade rules of the world, promote the free and convenient flow of production factors, and build a free trade port with high quality and high standards. Liberalization and facilitation of trade in services are the basic characteristics of high-level international free trade ports. Implementing the negative list on cross-border trade in services in Hainan will promote the free and convenient flow of technology, capital, data and other production factors with services as the carrier, which is very important for promoting the construction of a high-level free trade port with great international influence.

第二，从试点条件上来看，海南是我们国家最大的经济特区，它在实施全面深化改革和试验高水平开放方面具有独特的地理优势、区域优势。率先实施跨境服务贸易负面清单模式，开放度高、灵活度大，有利于发挥开放压力的测试作用。我们在制定负面清单的时候要考虑安全的问题，其实在海南做这样的测试，它作为相对独立的地理单元，便于我们加强监管、加强统计，统筹发展和安全。通过在海南积累经验、控制好风险，能为下一步在更广泛的区域内实施负面清单积累经验，探索路径。所以它的试点条件是比较独特的。

Second, from the perspective of pilot conditions, Hainan is the largest special economic zone of China, and it has unique geographical and regional advantages in implementing comprehensive and in-depth reform and testing high-level opening up. Implementing the negative list model of cross-border trade in services first in Hainan, which features high-level of openness and flexibility, is conducive to testing the pressure of openness. We should consider security when formulating the negative list. In fact, conducting such a test in Hainan, which is a relatively independent geographical unit, is convenient for us to strengthen supervision, statistical work, overall planning for development and security. By accumulating experience and controlling risks in Hainan, we can gain experience and explore paths for implementing negative lists in a wider area in the next step. Therefore, its pilot conditions are quite unique.

第三，制定海南跨境服务贸易负面清单，也是《海南自由贸易港建设总体方案》中提出来的一个明确要求。《海南自由贸易港建设总体方案》里就明确讲了要实施跨境服务贸易负面清单制度，通过破除在跨境交付、境外消费、自然人移动等服务贸易模式下存在的各种壁垒，在负面清单之外给予境外服务提供者更大的市场准入和国民待遇，这会对我们推进海南自由贸易港服务贸易自由化、便利化有非常大的好处，也是落实《海南自由贸易港建设总体方案》的一个要求。

Third, preparing a negative list on cross-border trade in services in Hainan is also a clear requirement put forward in the Master Plan for the Construction of Hainan Free Trade Port. The Master Plan for the Construction of Hainan Free Trade Port clearly states that it is necessary to implement the negative list system for cross-border trade in services, and give overseas service providers more market access and national treatment outside the negative list by breaking down various barriers existing in the trade in services modes, such as cross-border delivery, consumption abroad and movement of natural persons, which, as a requirement for the implementation of the Master Plan, will greatly help us promote the liberalization and facilitation of trade in services in Hainan FTP.