《市场准入负面清单（2025年版）》解读

摘要：On April 16, the National Development and Reform Commission, Ministry of Commerce, and the State Administration for Market Regulat

《市场准入负面清单（2025年版）》解读

Interpretation of the Negative List for Market Access (2025 Edition)

4月16日，国家发展改革委、商务部、市场监管总局联合对外发布《市场准入负面清单（2025年版）》¹（新版清单）。

On April 16, the National Development and Reform Commission, Ministry of Commerce, and the State Administration for Market Regulation jointly released the Negative List for Market Access (2025 Edition)"(this New List).

市场准入负面清单，是建立和实行全国统一的市场准入负面清单制度，以清单的形式将我国境内“禁止”和经政府“许可”才能够投资经营的行业、领域、业务汇总列出；市场准入负面清单之外，各类经营主体皆可依法平等进入。

The Negative List for Market Access refers to the establishment and implementation of a unified national system of negative lists for market access, which summarizes and lists industries, fields, and businesses within China that areeither "prohibited" or require government "authorization" for investment and operation in the form of a list. Outside the scope of this negative list, all types of business entities may enter freely and equallyin accordance with the law.

国家发展改革委、商务部于2018年印发首版市场准入负面清单，经过2019年、2020年、2022年、2025年四次修订。相比2022年版清单，新版清单事项数量由117项缩减至106项，减少了11项，事项下的全国性具体管理措施减少了17条，地方性管理措施减少了16条。让我们一起来看本次的新版清单有何亮点。

The National Development and Reform Commission and the Ministry of Commerce issued the first edition of the Negative List for Market Access in 2018, which underwent four revisions in 2019, 2020, 2022, and 2025. In comparison to the 2022 edition, thisNew List has seen a reduction in the number of items from 117 to 106, making an 11-itemdecrease. Additionally, there has been a decrease of 17 national-levelspecific Management measuresand 16 local management measures. Let’s delve into the highlights of this New List together.

一、准入门槛更低Lower Entry Barriers

新版清单删除了8条全国性准入限制。如公章刻制业由许可制改为备案制，计算机信息系统安全专用产品销售业务改为基于强制性国家标准的检测认证制度，相关市场准入管理措施相应取消。

This New List has eliminated 8 national-levelaccess restrictions. For example, the official sealengraving industry has shifted from a licensing system to a filing system, whilethe sales business of specialized computer information system security products has been shifted to a testing and certification system based on mandatory national standards, with corresponding market access management measures being canceled accordingly.

二、准入力度更大Greater Market Access

新版清单部分放开了8条全国性措施。涉及试办新型电信业务、电视剧制作、药品批发和零售单位筹建、药品和医疗器械互联网信息服务、林木种子进口、发票印制等领域。这些相关领域保持了必要的市场准入管理，但准入环节更加精简。

This New List has partially deregulated 8 national-level measures, encompassing areas such aspilot projects for new telecommunications services, TV drama production, the establishment of drug wholesale and retail entities, internet information services for pharmaceuticals and medical devices, timber seed imports, and fapiao printingand more. While these related fields continue to uphold necessary market access management, the access processes have been further streamlined.

三、调整地方性措施Adjustment of Local Measures

新版清单删除了17条地方性措施。涉及交通物流、货运代理、货运信息服务、森林资源损失鉴定、车辆租赁服务等，取消了相应的地方性许可措施，如取消有关地方设立的船舶设计修造、酒类生产经营等管理措施，按照全国统一的准入方式进行管理，促进全国统一大市场建设。

This New List deletes 17 local measures related to transportation logistics, freight forwarding, freight information services, forest resource losses assessment, vehicle rental services, etc. Corresponding local licensing measures have been cancelled, such as canceling locally established ship design and construction, alcohol production and operation,etc. These sectors will now be managed according to a unified nationalaccessapproach to facilitate the construction of a unified national market.

四、推进“宽准入”的同时，坚决守住“管得住”

While Promoting "Easy Access", FirmlyUpholding "Effective Regulation"

新版清单依法规范重点领域准入，依据相关法律、行政法规、国务院决定等，部分领域市场准入作了进一步规范，如将民用无人驾驶航空器运营合格证核发（微型无人驾驶航空器除外）、电子烟等新型烟草制品生产批发零售等新业态新领域纳入负面清单，对部分社会民生等领域管理措施进行了完善调整。

This New List further regulates key areas of market access in accordance with relevant laws, administrative regulations, and decisions of the State Council. Some areas of market access have been further regulated, such as the issuance of operating certificates for civil unmanned aerial vehicles (except for micro unmanned aerial vehicles) and the production, wholesale, and retail of new tobacco products such as electronic cigarettes, which have been included in the negative list. Management measures for some social and livelihood areas have been improved and adjusted.

新版清单中“禁止准入类”的事项数量为6项，包括禁止不符合主体功能区建设要求的各类开发活动、禁止违规开展金融相关经营活动、禁止违规开展互联网相关经营活动等。比如，“禁止违规开展金融相关经营活动”该项目下，禁止措施描述包括：非金融机构、不从事金融活动的企业，在注册名称和经营范围中不得使用“银行”“保险”“证券公司”“期货公司”“基金管理公司”“信托公司”等与金融相关的字样。

The number of "prohibited market access" items in this New List is 6, including the prohibition of various development activities that do not meet the requirements of the construction of the main functional areas, the prohibition of illegal financial related business activities, the prohibition of illegal Internet related business activities that are prohibited. For example, under the project of "Prohibiting illegal financial related business activities", the description of the prohibited measures includes non-financial institutions and enterprises that do not engage in financial activities are not allowed to use financial related words such as "bank", "insurance", "securities company", "futures company", "fund management company", "trust company" in their registered names and business scope.

国家发展改革委有关负责人表示，新版清单作出了多方面优化，完善“全国一张清单”管理要求和市场准入事项实施要求，境内外经营主体在中国境内开展投资经营，统一适用市场准入负面清单的各项规定，落实国民待遇要求。

The relevant official from the National Development and Reform Commission stated that thisNew List has made multiple optimizations, improved the management requirements of the " One National List" and the implementation requirements of market access matters. Both domestic and foreign business entities conducting investment and operation within China will uniformly apply the provisions of the negative list of market access and implement the requirements of national treatment.

自2019年起至今，经过四次修订，四度瘦身，清单内的事项数量已由2018年首发版的151项压减至目前的106项，压减比例约30%，与2016年试行的《市场准入负面清单草案（试点版）》328个事项相比，缩减比例则超过67%。使得一大批行业准入限制得以放宽，各类经营主体都能看得见、摸得着、进得去，切实做到了“清单越缩越短、市场越放越活”。

Since 2019, the list has undergone four revisions and reductions,slimming down from 151 items in its inaugural 2018 to 106currently, making a decrease of approximately 30%. Compared with the 328 items in the pilot version of the Negative List for Market AccessDraft in 2016, the reduction ratio exceeds 67%. Consequently, a significant number of industry access restrictionshave been eased, making it easier for various business entities to see, to touch, to access the market, effectively achieving the goal of"shortening the list andinvigorating market."

“放”了之后如何“管”，也广受各方关注，尽管新版清单在“说明”部分专门提出综合监管要求，明确各级政府部门要按照职责分工，坚决查处违法违规进入行为，依法依规对经营主体实施准入后监管，做到事前事中事后监管全覆盖，杜绝监管盲区和真空，后续将如何加强准入后监管，我们还是期望能够构建“政府监管、企业自觉、行业自律、社会监督”互为支撑的协同监管格局。

How to "manage" after "opened" has also received widespread attention. Despite this New List specifically puts forward comprehensive regulatory requirements in its "Explanation" section, clarifying that government departments at all levels should resolutely investigate and penalize illegal and noncompliant access behaviors based on their respective duties, enforce post-access supervision on business entities in accordance with laws and regulations, achieve full coverage of pre-, mid-, and post-access supervision, eliminate regulatory blind spots and vacuum in supervision, and how to strengthen post-access supervision in the future, we still expect to build a collaborative regulatory framework where "government supervision, enterprise consciousness, industry self-discipline, and social supervision " mutually support each other.

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