國務院辦公廳關于轉發商務部、國家發展改革委

《2025年穩外資行動方案》的通知

國辦函〔2025〕16號

各省、自治區、直轄市人民政府，國務院各部委、各直屬機構：

商務部、國家發展改革委《2025年穩外資行動方案》已經國務院同意，現轉發給你們，請認真貫徹落實。

國務院辦公廳　　　　　

2025年2月17日　　　　　

（本文有刪減）

2025年穩外資行動方案

商務部　國家發展改革委

外商投資是推進高水平對外開放的重要內容，為發展新質生產力和實現中國式現代化發揮著重要作用。為做好2025年穩外資工作，加大引資穩資力度，現制定如下行動方案。

一、有序擴大自主開放

（一）擴大電信、醫療、教育等領域開放試點。支持試點地區抓好增值電信、生物技術、外商獨資醫院領域開放試點政策宣貫落實，對相關領域外商洽談項目開展“專班式”跟蹤服務，及時協調解決問題，推動項目盡早落地。適時進一步擴大電信、醫療領域開放試點。研究制定有序擴大教育、文化領域自主開放實施方案，適時對外公布并穩步實施。

（二）落實全面取消制造業領域外資準入限制要求。對于外資準入負面清單之外的領域，嚴格按照內外資一致的原則對外資準入實施管理。修訂市場準入負面清單，進一步壓減清單事項，面向各類經營主體擴大開放。

（三）優化國家服務業擴大開放綜合試點示范。支持北京示范區發揮服務業擴大開放引領作用，推動試點工作提速加力。進一步擴大試點范圍，賦予試點新內容新任務，重點領域開放舉措優先在試點示范地區試驗。深入研究服務業擴大開放政策舉措，密切關注試點推進情況，及時復制推廣試點經驗。支持國家服務業擴大開放綜合試點示范地區開展標準化建設。

（四）推動生物醫藥領域有序開放。支持符合條件的外資企業參與生物制品分段生產試點，加快省級試點方案、質量監管方案審核，推動生物醫藥產業優化資源配置，及時協調解決試點過程中企業遇到的困難問題。研究完善醫藥領域開放政策，便利創新藥加快上市，優化藥品帶量采購，進一步提高醫療器械產品采購可預期性。

（五）鼓勵外資在華開展股權投資。抓好《外國投資者對上市公司戰略投資管理辦法》落實，制定發布實施戰略投資的操作指引，加大對上市公司、境外基金和投資機構等的宣介力度，引導更多優質外資長期投資我國上市公司。

二、提高投資促進水平

（六）持續打造“投資中國”品牌。落實深化外商投資促進體制機制改革要求，制定打造“投資中國”品牌年度實施方案，精心設計實施“投資中國”系列活動。央地協同聯動，開展境外投資促進活動，更好利用外資推進制造業補鏈強鏈。針對我主要投資來源地不同特點，研究制定差異化引資目標和策略，與雙邊經貿聯委會（混委會）機制密切配合，全面激活雙邊投資促進工作組機制，加大項目撮合對接力度。

（七）加大外資企業境內再投資支持力度。持續優化營商環境，切實把外資企業的國民待遇落實到位。研究制定鼓勵外資企業境內再投資政策措施，促進外資企業在華所獲利潤更多用于再投資。開展外資企業境內投資信息報告試點。

（八）擴大鼓勵外商投資產業范圍。修訂擴大鼓勵外商投資產業目錄，優化外商投資結構，促進外資服務我國制造業高質量發展，引導外資投向現代服務業，支持外資更多投向中西部和東北地區。

（九）取消外商投資性公司使用境內貸款限制。允許外商投資性公司使用境內貸款開展股權投資，加大政策宣傳解讀力度，為跨國公司在華投資設立總部型機構提供便利。

（十）鼓勵跨國公司投資設立投資性公司。優化外商投資舉辦投資性公司相關規定，在外匯管理、人員出入境、數據跨境流動等方面，為跨國公司投資設立投資性公司提供便利。保障相關外商投資性公司在華投資設立的企業依法依規享受外資企業待遇。

（十一）便利外國投資者在華實施并購投資。在外商投資法框架下，修訂《關于外國投資者并購境內企業的規定》，優化外資并購規則和并購交易程序，完善并購管理范圍，降低跨境換股門檻等。

（十二）加大重點領域引資力度。鼓勵外商投資養殖、飼養設備生產、飼料獸藥生產等畜牧業相關領域并享受國民待遇。支持外資企業參與我國新型工業化進程，重點引進高技術領域外商投資，為外資企業提供更多市場機會和合作空間。鼓勵養老服務、文化和旅游、體育、醫療、職業教育、金融等服務業領域吸引利用外資，滿足多層次服務消費需求。

（十三）加強經濟政策和營商環境對外宣介。充分運用新聞發布、吹風會、接受采訪、專家解讀等方式，對外積極宣傳闡釋我國擴大高水平對外開放的新政策新舉措新亮點。

三、增強開放平臺效能

（十四）深化開發區管理制度改革。完善政策支撐體系，制定深化國家級經濟技術開發區改革創新的政策文件，在要素保障、重點領域開放、承擔改革試點任務、經濟管理權限下放等方面出臺新舉措，提升國家級經濟技術開發區外向型經濟發展水平。推動國家級高新區、海關特殊監管區域及各類省級開發區等作為對外開放平臺發揮穩外資作用。

（十五）實施自由貿易試驗區提升戰略。推動自由貿易試驗區提質增效，擴大改革任務授權，加快推進海南自由貿易港核心政策落地，打造吸引外商投資高地。支持自由貿易試驗區在外資準入領域加大壓力測試，持續擴大規則、規制、管理、標準等制度型開放。

四、加大服務保障力度

（十六）推動重大和重點外資項目落地。支持將更多外資項目納入重大外資項目和重點外資項目清單，加大政策支持和服務保障力度，加快推動項目落地建設。

（十七）建立政府采購本國產品標準體系。盡快制定出臺相關文件，明確政府采購本國產品標準，確保不同所有制企業在中國境內生產的產品平等參與政府采購活動。加強政府采購領域政策宣傳，做好外資企業投訴處理工作。

（十八）拓寬外資企業融資渠道。鼓勵金融機構為外資企業提供融資服務，開展重點外資企業貸款需求及投資經營情況調研，有針對性舉辦銀企對接活動。引導各類基金與外資企業開展股權投資合作，支持在華外資企業擴大投資經營規模、深耕中國市場。

（十九）促進人員往來便利化。加快互免簽證協定商談，繼續穩妥擴大單方面免簽國家范圍。優化口岸簽證、過境免簽、區域性入境免簽政策，促進人員跨境流動。更新《外國商務人士在華工作生活指引》。

（二十）提升外資企業貿易便利化水平。做好優惠貿易協定項下原產地證書簽證工作，助力外資企業出口貨物享受協定伙伴方關稅減讓。優化重點外資項目進口成套設備檢驗監管。加大對外資企業海關“經認證的經營者”（AEO）培育力度，進一步優化降低AEO隨機布控查驗率。積極穩妥推進進口商品采信，將更多符合資質的中外檢驗機構納入采信機構目錄。鼓勵外資企業開展知識產權備案，堅決打擊進出口環節侵犯外資企業知識產權的行為。

各地區、各有關部門要在黨中央集中統一領導下，堅定不移深化改革開放，細化實化具體落實舉措，在投資促進、權益保護、服務保障等方面創新工作方法、強化政策和要素支持，確保2025年內各項舉措落地見效，有效提振外商投資信心。要組織有關部門赴重點地區、重點外資企業開展專項走訪活動，深入了解外資企業訴求，有效回應外資企業關切。商務部、國家發展改革委要會同有關部門和單位加強指導協調，做好政策宣傳，推動政策落地。重大事項及時請示報告。

2025 Action Plan for Stabilizing Foreign Investment

Ministry of Commerce and

National Development and Reform Commission

Foreign investment is crucial for promoting high-level opening-up. It plays an important role in fostering new quality productive forces and advancing Chinese modernization. We have thus formulated this action plan to intensify efforts to attract and stabilize foreign investment in 2025. 

I. Expanding self-initiated opening-up in an orderly manner

1. Expanding pilot programs to open up the telecommunications, healthcare, and education sectors. We will support efforts of the pilot regions to publicize and implement the opening-up policies for value-added telecommunications, biotechnology, and wholly foreign-owned hospitals, and assemble special teams to follow foreign-invested projects under discussion and help solve problems timely, and push for early implementation of these projects. We will expand pilot programs to open up the telecommunications and healthcare sectors at an appropriate time. We will study and formulate plans to expand self-initiated opening-up of the education and cultural sectors in an orderly manner, publish them at an appropriate time and implement them with steady steps.

2. Ensuring the lift of restrictions on foreign investment in the manufacturing sector is well-implemented. For areas not on the negative lists for foreign investment access, we will administer foreign investment access in the principle of equal treatment for domestic and foreign investment alike. We will revise the negative list for market access and further reduce the listed items to expand opening-up to all types of market operators.

3. Improving the national comprehensive demonstration zones for expanding opening-up in the services sector. We will support the leading role of the Beijing demonstration zone in expanding services liberalization to accelerate and intensify the pilot efforts. We will further expand the scope of the pilot to include new elements and tasks, and experiment with the opening-up measures in key areas in the demonstration zones first. We will conduct in-depth studies on policy measures to open up the services sector further, closely follow the progress of the pilot, and timely replicate pilot experience. We will support the standardization in the national comprehensive demonstration zones for expanding opening-up in the services sector.

4. Advancing opening-up of the biomedicine sector in an orderly manner. We will support the participation of qualified foreign-invested enterprises (FIEs) in the segmented production of biological products on a pilot basis, speed up the review of pilot programs and quality monitoring programs at the provincial level, promote the optimization of resource allocation in the biomedicine industry, and coordinate for the timely resolution of difficulties facing enterprises in the pilot process. We will study and improve the opening-up policies for the pharmaceutical sector, facilitate more rapid launch of new drugs, optimize volume-based drug procurement, and make medical device procurement more predictable.

5. Encouraging foreign equity investment in China. We will earnestly implement the Measures for the Administration of Strategic Investment in Listed Companies by Foreign Investors, formulate and release guidelines for making strategic investment, and intensify publicity efforts targeting listed companies, overseas funds, investment institutions, etc., to encourage more high-quality long-term foreign investment in listed Chinese companies.

II. Improving the level of investment promotion

6. Building continuously the brand of “Invest in China”. We will deepen the institutional reform of the foreign investment promotion system as required, devise an annual implementation plan for building the brand of “Invest in China”, and meticulously design and implement a series of “Invest in China” events. Central and local governments will make coordinated efforts in organizing overseas investment promotion events to fill in the gaps in and strengthen industrial and supply chains in the manufacturing sector with foreign investment. In light of the different characteristics of China’s major sources of foreign investment, we will research and formulate differentiated investment attraction targets and strategies, work closely with bilateral joint (mixed) economic and trade committees, and fully activate bilateral investment promotion working groups to boost project matchmaking.

7. Strengthening support for FIEs’ reinvestment in China. We will keep optimizing the business environment and ensure full national treatment for FIEs. We will research and formulate policy measures to encourage FIEs to reinvest in China and use more of their profits made in China for reinvestment. We will pilot an information report program for FIEs’ investment in China.

8. Encouraging foreign investment in a wider range of industries. We will revise and expand the catalogue of industries where foreign investment is encouraged, optimize foreign investment mix, promote the high-quality development of China’s manufacturing sector with foreign investment, steer foreign investment to the modern services sector, and support more foreign investment flows into China’s central, western and northeastern regions.

9. Removing restrictions on foreign-invested investment companies’ access to domestic loans. Foreign-invested investment companies will be allowed to access domestic loans for equity investment. We will make greater efforts to communicate relevant policies and provide facilitation for multinational companies to invest in and establish headquarters and similar institutions in China.

10. Encouraging multinational companies to invest in and establish investment companies. We will refine the rules for setting up foreign-invested investment companies and provide facilitation for multinational companies to invest in and establish investment companies in China in terms of foreign exchange administration, cross-border movement of personnel and cross border data flows. Companies invested in and established in China by foreign-invested investment companies will be eligible for FIE treatment in accordance with law and regulation.

11. Facilitating merger & acquisition (M&A) investment in China by foreign investors. The Provisions on the Merger and Acquisition of Domestic Companies by Foreign Investors will be amended under the framework of the Foreign Investment Law, with refined M&A rules and transaction procedures, better defined scope of administration and lower threshold for cross-border share swaps.

12. Intensifying investment attraction in key sectors. We will encourage and ensure national treatment for foreign investment in animal husbandry-related sectors such as breeding, production of rearing equipment and production of animal feed and veterinary medicine. To create more business opportunities and cooperation space for FIEs, we will support their participation in China’s new industrialization process, with a focus on high-tech sectors. Foreign investment utilization will be encouraged in services sectors including elderly care, culture and tourism, sports, healthcare, vocational education and finance to meet consumer demand for multi-tiered services.

13. Promoting communications on economic policies and the business environment. Press releases and briefings, interviews and expert comments will be fully utilized to showcase and explain China’s new policies, measures and highlights for expanding high-standard opening up.

III. Strengthening the functions of opening-up platforms

14. Deepening institutional reforms in economic and technological development zones. We will improve policy support systems and develop policy papers on deepening reforms and innovations in national economic and technological development zones, roll out new measures in guaranteeing production factors, opening up key sectors, carrying out pilot reform tasks and delegating economic management power, so as to improve the standards of export-oriented economy in national economic and technological development zones. For national high-tech industrial development zones, special customs supervision areas and various provincial development zones, we will tap into their role as opening-up platforms for stabilizing foreign investment.

15. Implementing the strategy to upgrade pilot free trade zones. We will improve the quality and efficiency of pilot free trade zones, expand the authorization of reform tasks, accelerate the implementation of core policies for the Hainan Free Trade Port and create a highland for attracting foreign investment. We support pilot free trade zones in stepping up stress tests in sectors accessible to foreign investment and continuing to expand institutional opening up in rules, regulation, management and standards.

IV. Redoubling efforts to enhance services

16. Promoting the implementation of major and key foreign-invested projects. We will encourage the inclusion of more foreign-invested projects in the lists of major and key foreign-invested projects and enhance policy support and services to accelerate the implementation of projects.

17. Establishing a system of standards for domestic products in government procurement. We will speed up developing and issuing relevant documents to specify the standards of domestic products in government procurement and ensure that products produced by enterprises of different ownerships within China participate equally in government procurement activities. We will enhance policy communication in the field of government procurement and improve the handling of complaints from FIEs.

18. Broadening financing channels for FIEs. We will encourage financial institutions to provide financing services for FIEs, research the borrowing needs, investment and operation of key FIEs, and organize targeted bank-enterprise matchmaking events. Various types of funds will be guided to carry out equity investment cooperation with FIEs, and FIEs supported in expanding their investment and business and deepening their footprint in China.

19. Facilitating personnel exchange. We will accelerate negotiations on mutual visa exemption agreements, and continue to expand the coverage of China’s unilateral visa-free policy in a prudent manner. Policies for port visa, visa-free transit and regional visa-free entry will be optimized to promote cross-border movements of people. A Guide to Working and Living in China as Business Expatriates will be upgraded.

20. Improving the level of trade facilitation for FIEs. We will work earnestly on issuing Certificates of Origin under preferential trade agreements to help FIEs enjoy tariff concessions from agreement partners. The inspection and regulation of complete sets of equipment imported for key foreign-invested projects will be optimized. More efforts will be made to support FIEs in obtaining the “Authorized Economic Operator” (AEO) certificate, and random inspections will be further optimized and reduced for AEOs. We will promote the adoption of inspection results of imports in an active and prudent manner, and include more qualified Chinese and foreign inspection institutions on the list of institutions whose inspection results are adopted. FIEs will be encouraged to apply for recordation of their intellectual property rights, and any infringement in the process of import and export will be resolutely combated.

Under the centralized and unified leadership of the Central Committee of the Communist Party of China, all regions and relevant departments should unswervingly deepen reform and opening up, refine specific implementation measures, and innovate working methods and strengthen policy and factor support in areas including investment promotion, rights and interests protection and services guarantee, to ensure that the measures can be put in place and take effect in 2025, so as to effectively boost the confidence of foreign investors. Relevant departments should be organized to visit key regions and major FIEs to better understand the requests of FIEs and effectively respond to their concerns. The Ministry of Commerce and the National Development and Reform Commission will work with relevant departments and agencies to enhance guidance and coordination for effective policy communication and implementation. Significant matters should be reported in a timely manner.

來源：中國政府網