Opinion of the State Council on Promoting the Expansion and Quality Improvement of the Service Industry
Issued by Document No. 7 [2026] of the State Council
People's Governments of all provinces, autonomous regions, and municipalities directly under the Central Government; all ministries and commissions of the State Council; and all institutions directly under the State Council:
To advance the expansion and quality improvement of the service industry, promote its high-quality and efficient development, and give better play to its role in supporting industrial upgrading, meeting people's livelihood needs, and expanding employment, the following opinions are hereby formulated.I. General Requirements
Guided by Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, we will fully implement the spirit of the 20th National Congress of the Communist Party of China and all plenary sessions of the 20th Central Committee, earnestly follow the arrangements of the Fourth Plenary Session, and apply the new development philosophy in a complete, accurate, and comprehensive manner. We will adhere to the combination of an efficient market and a competent government, pursue both capacity expansion and quality improvement, and coordinate development and regulation. We will highlight demand orientation, reform tackling, technological empowerment, and opening-up and cooperation, make coordinated efforts to optimize incremental growth and revitalize existing stock, and thoroughly implement the action plan for expanding and upgrading the service industry. We will remove institutional barriers restricting the development of the service industry, promote the extension of producer services to specialization and the high end of the value chain, and boost the high-quality, diversified, and convenient development of consumer services, so as to provide strong support for accelerating the building of a modern industrial system.
By 2030, remarkable progress will be made in the high-quality development of the service industry. The total scale of the service industry will reach 100 trillion yuan. A development pattern featuring higher quality, better structure, improved quality, and greater vitality will take shape basically. More "China Service" brands will be fostered. The global competitiveness and influence of the service industry will be significantly enhanced, and the sense of gain of the people will continue to rise.
II. Strengthening Weak Links in the Producer Service Industry across the Entire Chain
(1) Strengthening the Supporting Role of Science and Technology Services
R&D and Design. Cultivate leading industrial design enterprises and improve their professional and international level. Enhance the service capacity of the national network management platform for major scientific research infrastructure and large-scale scientific research instruments, and improve the evaluation and assessment mechanism for the open sharing of scientific research facilities and instruments. Upgrade the whole-process services such as engineering investigation, design, and supervision.
Intellectual Property Rights. Develop services including intellectual property strategy consulting and patent navigation, and screen high-value patents. Support the construction of patent pools for key industries, systematically improve intellectual property services, and strengthen the capacity to respond to cross-border intellectual property risks and provide legal services. Enhance the capacity for international copyright operation.
Transformation of Scientific and Technological Achievements. Strengthen policy support for the high-quality development of incubators, and plan and build incubators for emerging industries and future industries. Build a pilot test service network for the manufacturing industry, cultivate pilot test platforms for the manufacturing industry in a gradient manner, and develop high-quality national pilot test bases for artificial intelligence applications. Improve the network of technology trading service platforms, and build high-level technology transfer and promotion institutions. Establish regional technology transfer and transformation centers in universities to promote the agglomeration of scientific and technological innovation factors.
Inspection, Testing and Certification. Benchmark against international first-class standards, enhance inspection and testing service capabilities, and promote the international mutual recognition of results. Advance the construction of industrial product quality control and technical evaluation laboratories, quality inspection centers, and industrial metrology testing centers. Strengthen the capacity for testing and evaluation of infrastructure conditions and agricultural product quality. Step up the research and development of high-end measuring instruments and inspection and testing equipment.
(2) Enhancing the Comprehensive Competitiveness of Modern Logistics
Cargo Transportation. Improve the multimodal transport system and promote the implementation of "one-bill system" and "one-container system". Vigorously develop rail-water intermodal transport, and accelerate the shift of bulk cargo and medium- and long-distance cargo transportation from road to railway and waterway. Promote the transformation of railway freight transport to railway logistics, and improve industrial rules such as railway scheduling, settlement, and connection. Optimize the operation and scheduling mechanism of oil and gas pipeline networks, and accelerate nationwide interconnection. Vigorously develop international maritime and air transport services. Accelerate the cultivation of integrated logistics providers and strengthen resource scheduling and supply-demand connection.
Warehousing. Promote the renewal, transformation and upgrading of old logistics and warehousing facilities, explore the revitalization and utilization of idle facilities and railway freight yards, and advance the construction of distributed warehousing facilities. Strengthen services such as cold chain preservation, post-harvest pre-cooling, cleaning and packaging of agricultural products at the origin. Coordinate the layout of public, circulation, and functional composite cold storage, and renovate old cold storage.
Wholesale. Guide the rational layout of bulk commodity spot markets and promote the coordinated development of futures and spot markets. Enrich business formats of industrial consumer goods markets and explore integrated services such as centralized procurement and warehousing and distribution. Strengthen the systematic layout and policy support of agricultural product wholesale markets, and promote the transformation and upgrading of farmers' markets.
(3) Accelerating the Innovative Development of Software and Information Services
Software. Thoroughly implement the "Artificial Intelligence +" initiative, accelerate the research, development and application of intelligent programming tools, and support the procurement of large models and agent services. Break through innovative industrial software, and build industrial software compatibility, adaptation and application demonstration centers for key industries. Strengthen the construction of basic software ecosystems and open-source communities. Optimize the ecosystem of smart audio-visual systems.
Information Transmission. Further promote the large-scale application of the 5th Generation Mobile Communication (5G) technology. Advance the development of 5G-A networks and strengthen the research and development of the 6th Generation Mobile Communication (6G) technology. Build the Internet of Things for mobile applications in an appropriately advanced manner. Develop satellite Internet application services.
Data and Information Technology. Thoroughly implement the innovation and development project of the industrial Internet. Promote the industrial data foundation initiative, foster data cooperation consortia, and build a number of high-quality industry data sets. Develop professional services such as data annotation and certification, and explore the establishment of a classified and graded data right confirmation, evaluation and pricing mechanism. Advance the layout of computing power and the construction of edge computing power in an orderly manner, and improve the intelligent computing cloud service system. Accelerate the application of urban information model platforms and building information modeling technologies.
(4) Enhancing the Professional Service Capacity of Supply Chain Finance
Banking, Securities and Insurance. Guide financial institutions to carry out financing against movable property and rights such as inventories, orders and warehouse receipts under the premise of compliance with laws and regulations and risk control. Establish a full-life cycle financing system that invests in early-stage, small, long-term and hard-tech enterprises. Give play to the role of the national venture capital guidance fund, and optimize and promote the "innovation points system" and the evaluation of specialized and sophisticated SMEs. Promote new financial service tools such as supply chain bills. Expand the coverage of product research and development liability insurance, promote pilot test service insurance, and implement the insurance compensation policy for the first set of equipment. Launch the digital renminbi empowerment initiative. Explore the mutual recognition of cross-border supply chain finance standards.
Financial Leasing. Encourage financial leasing enterprises to provide customized solutions by comprehensively using service models such as direct leasing, sale-and-leaseback, and joint leasing to reduce the operating costs of lessees. Strengthen the monitoring and evaluation of lessees' credit status and repayment capacity, and establish a sound value evaluation system for leased assets. Give play to the role of government-backed financing guarantee institutions and establish a risk sharing mechanism for supply chain finance.
(5) Vigorously Developing Energy Conservation and Environmental Protection Services
Energy Conservation and Carbon Reduction. Carry out energy efficiency diagnosis in key industries, promote the energy cost trusteeship service model for public institutions, and implement energy conservation and carbon reduction transformation for public institutions and large public buildings. Carry out secured financing of carbon emission rights, emission rights, water rights and other rights in accordance with the law in a steady manner. Encourage financial institutions to participate in carbon market transactions, explore carbon insurance business, and promote innovative products such as carbon neutral bonds.
Environmental Governance. Develop technical services for green, high-yield and efficient agriculture and agricultural waste treatment and utilization services. Accelerate the development of environmental protection services such as marine ecological restoration and pollution control. Expand services such as water conservation assessment, environmental monitoring and pollution insurance.
Recycling. Advocate the concept of green conservation, encourage the renewal and use of products with better energy efficiency levels, and eliminate products that have reached mandatory scrapping standards or fail to meet safety technical specifications in accordance with laws and regulations. Improve the layout of renewable resources recycling outlets, improve the logistics system of "replacement + recycling", and coordinate the construction of renewable resources sorting centers. Support key industries in developing remanufacturing services. Establish a renewable materials certification system and promote international cooperation and mutual recognition. Deepen research on carbon footprint accounting standards and methods for key renewable materials.
(6) Strengthening and Optimizing Commercial Services
Legal and Consulting Services. Actively develop cross-border legal services and foster a number of world-class arbitration institutions and law firms. Vigorously develop professional services such as commercial consulting, asset evaluation, accounting and auditing, taxation and advertising, and strengthen the capacity of quality consulting and supply chain management services. Strengthen the construction of industry think tanks and build world-class consulting brands.
Human Resource Management. Release the demand catalog of high-end, sophisticated, scarce and urgently needed talents, and continue to implement the knowledge renewal project for professional and technical talents. Improve the professional skill competition system with Chinese characteristics. Develop service products such as job recruitment large models and virtual reality training. Thoroughly carry out the "Belt and Road" human resource service initiative.
III. Elevating the Development Level of Key Areas of Consumer Services
(7) Increasing High-quality Supply of Residential Services
Community and Housekeeping Services. Innovate the integrated community service model and promote the expansion, quality improvement and efficiency enhancement of complete communities. Implement the property service quality improvement initiative. Carry out institutional and model innovation in the housekeeping service industry, expand new home services, improve the quality and professional service level of practitioners, and enhance the people's micro experience. For disadvantaged groups, focus on meeting the needs of special care.
Retail. Promote the rational urban and rural planning and layout of the retail industry, implement the retail industry innovation and upgrading project, and support eligible cities to create new consumption scenarios with "one store, one policy". Encourage the development of instant retail formats such as community micro cold storage and front warehouses. Implement the high-quality development project of rural e-commerce and promote the transformation and upgrading of "thousands of markets and ten thousand stores".
(8) Improving the Adaptability of Elderly Care and Childcare Services
Elderly Care. Improve the three-level elderly care service network at the county, township and village levels, expand the coverage of community elderly care services, and encourage home-based aging-friendly renovation. Increase the supply of services such as rehabilitation nursing, integrated medical and elderly care, and long-term care, and develop new services such as tourism-based elderly care.
Childcare and Preschool Education. Develop inclusive childcare and integrated childcare and preschool education services, thoroughly carry out demonstration pilots of childcare service subsidies, and support child welfare institutions to provide care, rehabilitation, special education and other services for disabled children in need.
(9) Enhancing the Professional Capacity of Health Services
Medical and Health Services. Support medical and health institutions to carry out personalized family doctor contract services, and provide services such as health assessment, chronic disease management, home visits and medication guidance. Steadily advance the pilot program of international medical services.
Preventive Health Care. Develop preventive health care for women and integrated medical and health care services, and improve the health service network for children and the elderly. Strengthen the construction of a socialized service system for mental health and mental hygiene. Accelerate the development of services such as sports data analysis and nutrition consultation.
(10) Innovating Service Models for Culture, Tourism and Sports
Culture and Tourism. Guide the sound and orderly development of formats such as performing arts and entertainment, games and animation, and online literature to spread positive energy. Encourage popular scenic spots, cultural and museum venues to extend opening hours. Improve public facilities in scenic spots, revitalize existing tourism projects, strengthen refined management, and optimize service supply.
Sports and Fitness. Extensively carry out national fitness activities to enhance people's physical fitness. Promote the high-quality development of event economy and ice and snow economy, foster new formats such as RV camping, and build high-quality outdoor sports destinations. Cultivate new intelligent, customized and experiential sports consumption models.
Accommodation and Catering. Adapt to the people's upgrading demand from "having a place to live" to "living well and living worthily", improve safety and hygiene standards, expand new service models, and develop new accommodation formats featuring historical and cultural, technological, parent-child and other elements. Cultivate catering services that are healthy, safe, nutritious, balanced and reflect local characteristics, and release a number of high-quality gourmet tourism routes.
IV. Improving the Digitalization, Standardization, Integration and Internationalization of the Service Industry
(11) Promoting the Digital and Intelligent Transformation of the Service Industry
Focusing on key links such as R&D and design, inspection and testing, logistics and distribution, wholesale trade, and consulting services, build vertical industrial Internet platforms, and use "small, fast, light and accurate" solutions to lower the threshold for digital and intelligent transformation. Implement special actions to accelerate the development of digital and intelligent supply chains, and advance the digital empowerment project for commerce and logistics. Centering on data empowerment, implement comprehensive major scenarios and high-value application scenario projects, foster digital and intelligent transformation service providers, and build benchmarking projects for the collaborative application of data, algorithms and scenarios.
(12) Accelerating the Standardization of the Service Industry
Strengthen top-level design and improve the standard system for key areas. Improve standards and specifications for housekeeping, care, catering and other fields. Accelerate the formulation of service standards for new and integrated formats such as low-altitude services and agricultural socialized services. Build a standard system for industrial Internet platforms and technical specifications for interconnection, establish a computing service standard system, and formulate and revise green service standards. Improve the service standards for the platform economy. Promote the establishment of international industrial and standard organizations and facilitate the "going global" of Chinese standards.
(13) Improving the Integrated Development of Modern Services with Advanced Manufacturing and Modern Agriculture
Focus on key areas to deepen the pilot program for the integrated development of advanced manufacturing and modern services. Innovatively develop service-oriented manufacturing and promote the transformation of manufacturing enterprises to "product + service" solution providers. Improve a convenient and efficient agricultural socialized service system and optimize the functions of the agricultural product market information service platform. Actively promote the in-depth integration of agriculture with health care, culture and tourism.
(14) Steadily Advancing the Opening-up and Cooperation of the Service Industry
Further expand the opening-up pilot in fields such as value-added telecommunications, biotechnology, and wholly foreign-owned hospitals. Improve the negative list management system for cross-border trade in services. Enhance the capacity of services such as compliance assessment and safety certification for data outbound. Strengthen trade in services cooperation with key countries and regions, and coordinate the layout and construction of major opening-up and cooperation platforms such as demonstration zones for innovative development of trade in services. Promote the export of cultural services and tourism services, and expand inbound consumption.
V. Improving the Support Policy System
(15) Deepening Reform and Innovation
Adhere to both "effective liberalization" and "sound regulation", clean up unreasonable standards and restrictive measures in the service industry, and promptly remove barriers in factor access, qualification recognition, bidding and government procurement. Deepen the reform of public institutions in the service sector to enhance development vitality. Optimize the market access environment in medical care, scientific and technological innovation and other fields. Enrich the supply of service scenarios and launch application scenario project lists in batches. Improve the statistical system, build a multi-dimensional comprehensive evaluation index for the development of the service industry, and accelerate the promotion of big data regulation.
(16) Enriching Fiscal and Financial Policy Tools
Enhance the pertinence and effectiveness of policy support, and improve a financing and credit enhancement system covering factors such as quality, standards, brands, trademarks, patents and copyrights. Make good use of policy tools such as re-lending for service consumption and elderly care. Enrich the development of elderly care financial products and implement long-term care insurance. Optimize the implementation of loan discount policies for service industry business entities, provide phased discounts for eligible producer service SMEs and private enterprises, and increase financial support for new consumption scenarios. Support the integrated development of advanced manufacturing and modern services through existing national-level government investment funds. Support eligible projects in the service industry to issue real estate investment trusts (REITs) in the infrastructure sector.
(17) Enhancing Infrastructure Support Capacity
Revitalize and make good use of various stock resources. Accelerate the construction of urban parking and charging and swapping facilities, and promote the renewal and transformation of old equipment. Strengthen the construction of modern comprehensive agricultural service centers. Plan and build integrated and efficient quality infrastructure, and increase support for investment in intangible assets such as software, R&D and data. Systematically promote the construction and functional improvement of national logistics hubs, and optimize the layout of overseas warehouses. Promote the expansion and upgrading of the construction of 15-minute convenient life circles in cities. Promote the renewal of commodity trading markets, urban retail stores, rural commercial outlets and other facilities. Renovate old blocks and factory areas, and support the upgrading of formats in business districts, cultural industrial parks and other places.
(18) Expanding High-quality Business Entities in the Service Industry
Accelerate the cultivation of backbone service enterprises and support eligible ones in listing for financing and mergers and acquisitions. Promote the specialized and sophisticated development of service SMEs, and step up the cultivation of "famous, special, excellent and new" individual businesses. Cultivate and strengthen agricultural socialized service entities. Strengthen the collection of industry credit information, encourage business entities to make service quality commitments, and advocate high quality at reasonable prices. Support enterprises in strengthening brand building and communication, and foster new brand experience scenarios.
(19) Strengthening Talent Development
Optimize the layout of disciplines and majors related to the service industry, and support eligible regions in building municipal industrial-education complexes and industry-education integration communities. Thoroughly implement the "Skills Brighten the Future" training initiative, and carry out large-scale vocational skill upgrading training for urgently needed industries and key employment groups. Broaden the scope of introduction of professional talents and advance the construction of a one-stop service platform for overseas talents.
(20) Strengthening Safety Regulation
Improve a cross-departmental and cross-industrial examination and approval regulation model adapted to integrated formats to avoid gaps in management and services. Improve the safety management system for densely populated areas such as venues for performances, sports events and exhibitions, and tourist attractions, and implement production safety responsibilities. Standardize catering service operations and strictly adhere to the bottom line of food safety. Resolutely rectify chaos such as unfair clauses and false publicity, and effectively protect consumers' rights and interests. Strengthen the protection of the rights and interests of workers in new forms of employment.
Under the centralized leadership of the Party Central Committee, all regions and departments shall earnestly implement this opinion in light of actual conditions and strive to create a new situation in the high-quality development of the service industry. We will further improve the government assessment system and fully mobilize the enthusiasm and initiative of all parties. All regions shall, based on their development stages and comparative advantages, implement various tasks and measures in a targeted and detailed manner. The National Development and Reform Commission shall strengthen overall coordination, monitoring and evaluation. All departments shall advance work in different fields in accordance with their division of responsibilities, strengthen collaboration, enhance publicity and guidance, extensively build social consensus, and create a favorable atmosphere for the participation of the whole society. Major matters shall be reported to the Party Central Committee and the State Council in accordance with procedures in a timely manner.
