Opening China’s Service Economy: Opportunities and Challenges€¦ · vice sector. As the service sector remains underdeveloped in China, there are substantial opportunities for

The American Chamber of Commerce in the People’s Republic of China

2015 POLICY SPOTLIGHT SERIES | 2015年度政策聚焦系列

Opening China’s Service Economy: Opportunities and Challenges

走向开放的中国服务业：机遇与挑战

All charts without a source cited are based on industry-specific data from the 2015 AmCham China Business Climate Survey.

文中所有未注释资料来源的图表皆来自于中国美国商会2015年度商务环境调查。

All monetary conversions are based on the average 2014 exchange rate of US $1.00=RMB 6.16.

所有的人民币换算为美元都是依据2014年 6.16：1的汇率计算的。

Table of Contents 目录

Chairman's Message ...................................................................................................................................................................................... II主席致辞

Part I. Introduction .......................................................................................................................................................................................... 2第一部分：引言

Part II. Charts 第二部分：图表

Promotion and Proposed Openings of Service Sector Industries .................................................... 12关于发展和开放服务业的建议

Key Restrictions on Service Sector Industries ........................................................................................................ 18服务业面临的主要限制

Measures Limiting Companies' Ability and Willingness to Invest in China ............................ 24抑制贵企业在华投资能力和意愿的措施

Practices Limiting Companies' Ability and Willingness to Invest in China .............................. 26抑制贵企业在华投资能力和意愿的因素

Part III. Industry-Specific Investment Issues and Recommendations 第三部分：具体行业投资问题和建议

Banking, Capital Markets, and E-Payment ................................................................................................................. 32银行、资本市场及电子支付

Construction, Engineering, and Design ...................................................................................... 40建筑、工程及设计

Healthcare Services ............................................................................................................................................................................ 44医疗服务

Information and Communications Technology .................................................................................................... 48信息通信技术

Insurance ....................................................................................................................................................................................................... 52保险业

Legal Services ........................................................................................................................................................................................... 56法律服务

Media and Entertainment ............................................................................................................................................................ 60传媒和娱乐

Real Estate .................................................................................................................................................................................................... 64房地产

Retail, E-Commerce, Distribution, and Logistics .................................................................................................. 68零售、电子商务、分销和物流

| AmCham China's 2015 Policy Spotlight Series |II

CHAIRMAN’S MESSAGE

The service sector is a key part of the US economy and accounts for almost 80 percent of US private-sector gross domestic product (GDP), or US $9.81 trillion (RMB 69.4 trillion).

Services jobs – including those in the financial, insurance, education, engineering, legal, media and entertainment, telecommunications, retail, real estate, travel, healthcare, information, and computer technology sectors – account for more than 80 percent of US private-sector employment, or 89.7 million jobs.

As the US has seen, the growth of the service sector helps drive an innovation-based economy given that many key service jobs are knowledge based. Indeed, governments around the world recognize the importance of integrating and supporting services in other sectors of the economy, especially economies in transition or seeking to move up the value chain.

In addition to being an important component of the US domestic economy, the export of American services helps the global development of the sector through the exchange of information and ideas, the application of technological advances in the workplace, and through training and development of skill sets. Hence, the best way that China can promote its own service sector is by attracting and encouraging foreign service providers to invest in the domestic market.

Having said this, AmCham China members have struggled with the challenges that impact their ability and willingness to invest in the market including, among other things, regulatory ambiguity and unequal approval procedures, standards that favor domestic service providers, de-facto tech-nology transfer requirements, and market access limitations. Such restrictions could potentially put China and Chinese companies at a significant disadvantage in the global marketplace by isolating China technologically from the rest of the world, with an end result that may limit the country’s access to cutting-edge technology, innovation, and ideas.

In this Policy Spotlight Series report on China’s service sector, the chamber hopes to raise awareness of the challenges that the American business community faces and encourage policymakers to take concrete steps to improve the environment for foreign service providers. Further opening to foreign investment will help China to develop its own world-class service sector, which will be a key sup-porter of China’s efforts to maintain economic growth levels, rebalance the economy, and address a host of other challenges affecting the Chinese economy.

James ZimmermanChairman, AmCham ChinaAugust 2015

| 中国美国商会 2015 年度政策聚焦系列 | III

主席致辞

服务业是美国经济的重要组成部分，占美国私营部门国内生产总值的 80%，即 9.81 万亿美元（约

合 69.4 万亿人民币）。

服务行业，包括金融、保险、教育、工程、法律、传媒与娱乐、通信、零售、房地产、旅游、

医疗保健、信息与计算机领域在内，为美国私营部门创造了超过80%的就业，即8970万个就业岗位。

由于在服务业中知识型产业占多数，美国见证了服务行业的兴盛所带动的创新型经济的发展。

实际上，各国政府，特别是处于转型中或正谋求在价值链上游占据一席之地的经济体，都意识到

了整合及支持其他经济领域中服务行业的重要性。

此外，作为美国国民经济的一个重要组成部分，美国服务业的出口也通过信息及理念的交流、

先进技术的运用、技能的培训及发展，促进了全球服务业的进步。因此，中国促进本国服务业发

展的最佳途径就是吸引和鼓励外资服务供应商来中国市场投资。

然而一直以来，中国美国商会的会员在中国却面临着许多挑战，这些挑战影响了他们在中国市

场投资的能力及意愿，包括：模糊的监管政策、不公平的审批程序、有利于于本土服务提供商的标准、

技术转让要求以及市场准入限制。以上限制可能将会在技术上使中国与世界隔离，从而导致中国

与中国企业在全球市场上处于不利地位，并最终阻碍中国获取尖端技术与理念、实现创新。

中国美国商会希望借由本次政策聚焦系列中对中国服务业的报告，使人们意识到美国商界所面

临的挑战，并促使政策制定者采取具体措施，改善外资服务供应商在中国的投资环境。对海外投

资的进一步开放，可以帮助中国将本土的服务行业发展至世界先进的水平，并在未来成为中国保

持其经济增速、平衡经济、应对众多经济挑战的关键助力。

吉莫曼

中国美国商会主席

2015年8月

IIntroduction

引言

| AmCham China's 2015 Policy Spotlight Series |2

| OPENING CHINA’S SERVICE ECONOMY |

A mCham China applauds the Chinese govern-ment’s emphasis on the service sector as a criti-cal driver of China’s future economic growth. We believe that market competition is essential

to the successful development of a vibrant and world-class service sector and that opening the market to foreign-invest-ed service providers on a level playing field is key to China’s future economy. We therefore urge the Chinese government to hasten the speed of such openings as well as other reforms essential to promoting and supporting the service industry, including by offering a shortened negative list with only nar-rowly crafted exceptions in the upcoming US-China Bilateral Investment Treaty (BIT) negotiations.

The rebalancing of China’s economy and provision of high quality economic growth depend on the growth of the ser-vice sector. As the service sector remains underdeveloped in China, there are substantial opportunities for further qual-ity economic growth and employment, and foreign-invested service providers are well-equipped to contribute.

This year’s Policy Spotlight on China’s service sector com-bines recommendations and updated input from nine spe-cific sectors included in our 2015 American Business in China White Paper as well as data collected from our 2015 China Business Climate Survey to offer a comprehensive view of the current environment faced by foreign-invested service pro-viders operating in China, with recommendations to both the Chinese and US governments to ensure successful devel-opment of the service sector in China.

Our members strongly support the Chinese government’s reform agenda, and hope to contribute to the numerous reform initiatives. We look forward to the 13th Five-Year Plan to be released later this year, and urge the government to continue to prioritize service sector reforms to enable sus-tainable economic growth. Our members look forward to playing their part to further improve services for Chinese consumers as well as to ensure success in Chinese compa-nies’ increasing expansion in the US and around the world. The participation of foreign-invested service providers in China’s economy will also facilitate and accelerate China’s rise up the global value chain.

Numerous reform initiatives have potential to substantially improve the business environment for service companies, including the Pilot Free Trade Zones (FTZs) and other stated

policy initiatives such as the “Several Opinions of the State Council on Accelerating the Development of Service Trade” (State Council Opinions) and the “Beijing Comprehensive Pilot Program for Expanding and Opening up the Service Industry” (Beijing Pilot Program). AmCham China recom-mends acceleration of the intended openings and reforms for the immediate benefit of the Chinese economy.

Our members strongly support the rapid negotiation of a high-standard BIT, though the recent pace of reforms and openings for foreign businesses have indicated the time-line may not meet the hopes of the business community. AmCham China urges the Chinese government to take bold steps forward in opening markets to foreign service provid-ers and reforming the operating environment for foreign companies to ensure that such policies do not limit foreign-invested service providers from contributing to China’s urgent economic transformation. We believe market access for foreign-invested service providers should be made not only within the ongoing BIT negotiations, but in accordance with China’s immediate economic needs. Such progress will also boost the momentum and public support needed to rap-idly secure a strong BIT to the benefit of investment flows for both countries.

The industries included in this report have a strong positive role to play in the development of China’s economy, and can help to ensure the success of China’s reforms and continued economic growth. AmCham China, however, is concerned about ongoing and emerging issues that could limit the development of a competitive world-class service economy. Continued limits to transparency, pending regulations on data localization and cross-border data flows, government preferences for state-owned enterprises (SOEs) and certain designated monopolies, licensing requirements that act as default barriers to foreign firms, and overly broad defini-tions of national security in recent regulations have limited, and continue to limit, the opportunities for foreign-invested service providers. Such issues have grown in prominence as the global economy becomes increasingly interconnect-ed, and can curtail business activity and economic growth, while also creating harmful global trade barriers. AmCham China urges the BIT negotiators to closely assess the inclu-sion of these issues within the BIT text to ensure the intended full benefit of the treaty is effectively reached within China’s unique market.

INTRODUCTION

| 中国美国商会 2015 年度政策聚焦系列 | 3

| 走向开放的中国服务业 |

中国美国商会赞赏中国政府对服务业的重视，认为

其是中国未来经济增长的关键动力。我们认为，

市场竞争是成功发展充满活力的世界级服务业必

不可少的条件。在公平竞争环境下向外资服务提供商开放市

场也是中国未来经济发展的关键，因此我们敦促中国政府加

快此类开放的速度，同时加快其他必要改革，促进和支持服

务业发展，包括在接下来的中美双边投资协定谈判中进一步

缩减负面清单。

中国经济再平衡和高质量经济增长的实现依赖于服务业

的增长。由于服务业在中国发展仍然滞后，因此它的发展为

进一步的高质量经济增长和就业提供了重大机遇，同时，外

资服务提供商有充分的能力为此作出贡献。

今年的《中国服务业报告》涵盖了来自中国美国商会

《2015 年度美国企业在中国白皮书》所包含的 9 个特定领

域的建议和最新信息以及从商会《2015 年度中国商务环境

调查》中收集的相关数据，我们的目的是就在华经营的外资

服务提供商所面对的当前环境进行全面分析，同时向中美两

国政府提出建议，以确保中国服务业的成功发展。

我们的会员积极支持中国政府的改革议程，并希望能够

为众多改革举措作出贡献。我们对将于今年晚些时候发布的

第十三个五年规划充满期待，并敦促政府继续将服务业改革

放到优先位置，从而实现经济可持续增长。我们的会员期待

着能够为进一步提升中国消费者服务水平发挥自己的作用，

并且帮助中国公司在美国和全世界不断发展。外资服务提供

商参与中国经济也将促进并加快中国在全球价值链中的崛

起。

众多改革举措将可能大幅改善服务业公司的商业环境，

其中包括自由贸易区试点（自贸区）和其他一些明确的政策

举措，如《国务院关于加快发展服务贸易的若干意见》（国

务院意见）和《北京市服务业扩大开放综合试点总体方案》

（北京试点方案）。中国美国商会建议加快实施这些开放和

改革举措，从而使中国经济直接受益。

我们的会员大力支持为制定高标准的双边投资协定而尽

快展开谈判，尽管近期改革以及对外企开放的进度已表明谈

判的进程可能无法达到美国商界的期望。中国美国商会敦促

中国政府进一步向外资服务提供商开放市场，并改革外资企

业的运营环境，确保此类政策不会限制外资服务提供商为中

国迫在眉睫的经济转型作出贡献。我们相信，增加外资服务

提供商的市场准入不应仅通过双边投资协定来实现，也应该

根据中国当下经济发展的需求来实施。此方面的进展也有助

于获取来自美国商界的支持，促使有利于两国间投资的强有

力的双边投资协定得以尽快确立。

本报告中的行业在中国经济发展中发挥了强大而积极的

作用，并有助于确保中国改革的成功和经济持续增长。然而

中美商会担心目前存在及新出现的一些问题将会限制中国发

展成为具有竞争力的世界级服务型经济体。长期存在的缺乏

透明度、数据本地化和跨境数据流规定悬而未决、政府偏好

国有企业和某些指定的垄断企业、许可要求（成为对外国公

司的默认障碍）、最近一些法规对国家安全过于宽泛的定义

等，这些因素已经限制了并将继续限制外资服务提供商的机

会。随着全球经济的联系越来越紧密，此类问题日益突出，

从而阻碍了商业活动以及经济发展，同时也造就了有害无益

的全球贸易壁垒。商会敦促双边投资协定的谈判代表在双边

投资协定中详尽分析这些问题，从而确保该协议制定的效益

能在中国市场中有效实现。

进展情况

《2015 年度商务环境调查》显示，来自服务业的会员

对中国市场的未来机会持乐观态度，并希望能够进一步为中

国经济发展做出贡献。中国政府的统计数据进一步支持了上

述观点，即服务业的增长机会日益凸显。2014 年，服务业

价值超过 30.7 万亿元人民币（约合 4.9 万亿美元），占到

引言



ONGOING DEVELOPMENTS

As revealed in the 2015 Business Climate Survey, our service sector members are optimistic about future opportunities in China’s market, and hope to contribute further to China’s economic development. Chinese government statistics fur-ther support the understanding that growth opportunities increasingly lie in the service sector. In 2014, the service sector was worth more than RMB 30.7 trillion (US $4.9 tril-lion), 48.2 percent of GDP, and 5.6 percent higher than the manufacturing sector. In the first half of 2015, the service sec-tor accounted for 49.5 percent of GDP, growing 8.4 percent over this period and outpacing overall GDP growth. Indeed, even while China’s economy has slowed, the service sector accounted for 63.5 percent of all utilized foreign investment into China during the first half of 2015. There is strong inter-est in the potential for China’s service market, and our com-panies stand ready to invest further in their China opera-tions to meet local needs.

Today, close to 80 percent of US GDP is generated by the service sector, and American firms have long and robust experience providing best-in-class services and products to their clients. The free and open foreign investment climate in the US has greatly contributed to the success of the service sector, and brought firms from around the world to compete and create high-skilled jobs for Americans. We believe that similar market openness can have a comparable impact in China.

AmCham China believes that the opening of China’s service sector is essential for China’s continued development and should be pursued ambitiously to create immediate benefits for the domestic economy. Such opening will also exempli-fy China’s expressed intent to intensify and build support for the ongoing BIT negotiations. Allowing greater foreign investment in China’s service sector will create employment opportunities for China’s highly educated workforce and allow China to offer higher quality and value-added goods, which also contribute to increased levels of individual income.

The developments within the FTZs and other recent policy initiatives which express intentions to expand market access for various service sector industries (e.g., the State Council Opinions, Beijing Pilot Program) constitute positive devel-opments and should be augmented and accelerated.

The State Council Opinions were released on February 14, 2015, articulating for the first time the Chinese govern-ment’s strategic objectives for the service trade. According to the State Council Opinions, market entry and administra-tive approval requirements in the service industries will be reduced. A string of measures were announced, including plans to “significantly open up the finance, education, cul-ture, and medical treatment sectors” to both domestic pri-vate and foreign capital, ease market entry restrictions faced

by foreign investors in a broad set of industries, and nurture enterprises in capital and technology-intensive areas.

In addition, our members look forward to engaging with the Beijing city government as it develops its Pilot Program to better understand its plans and contribute to Beijing’s expan-sion of its service industry. The three-year pilot program seeks to open Beijing’s service industry to foreign invest-ment in six sectors: science and technology, Internet and information services, culture and education, business and travel, financial services, and health and medical services. In 2014, services accounted for 77.9 percent of Beijing munici-pality’s GDP, showing that Beijing has a robust ecosystem ready for the improved efficiency and quality of services that our member companies can bring to the market. Our mem-bers look forward to engaging with the Beijing municipal government to help ensure the success of the Pilot Program.

To date, however, we find that many of these developments are in need of significant clarification and do not yet resolve the fundamental concerns of foreign investors in China. Improvements in market access, transparency and due pro-cess in enforcement, unequal administrative approvals and unclear regulatory hurdles still need to be addressed in the service sector to enable greater investment and growth. Many of the stated reform initiatives still include joint ven-ture or local partner requirements, are limited in scope, and provide few assurances that the administrative process will ensure open competition between foreign and local compa-nies or equal opportunities for industry engagement in stan-dards development organizations.

CROSS-INDUSTRY CONCERNS

The abovementioned reform initiatives have boldly stated an intent to open to foreign investment, and AmCham China believes that meaningful openings for foreign-invested ser-vice providers through the Foreign Investment Catalogue, FTZs, and Beijing’s Pilot Program provide opportunities for increased investment in China by foreign service providers. Recent discussions with government officials regarding the initial negative list offer for the BIT indicate that the initial list does not sufficiently meet the expectations of US businesses interested in a rapid negotiation process. Furthermore, numerous companies have reported being told by Chinese government officials that any further market opening will be held off until the completion of the BIT. AmCham China strongly supports the pursuit of a rapid negotiation process, though believes that market opening and implementation of reforms by the Chinese government prior to the comple-tion of a BIT will benefit the Chinese economy and consum-ers while providing measurable signals of China’s intent to achieve meaningful market access for foreign companies. This will, in turn, help to build broader business support in the US for the ongoing treaty negotiations.



GDP的48.2％，比制造业高出5.6个百分点。2015年上半年，

服务业占到 GDP 的 49.5％，同比增幅达到 8.4％，超过了

GDP 总体增幅。事实上，即使中国经济已经放缓，但 2015

年上半年服务业占到了中国全部利用外资额的 63.5％。投

资人对中国服务市场潜力抱有浓厚兴趣，而我们的会员企业

随时准备进一步投资中国业务，以满足当地需求。

如今，近 80％的美国国内生产总值是由服务业产生的，

在为其客户提供一流服务和产品方面美国公司有着长期而

可靠的经验。在美国，自由而开放的外资环境极大地促进

了服务业的成功，并吸引来自世界各地的企业彼此展开竞

争，同时为美国人创造出众多高技能就业岗位。我们相信，

类似的市场开放程度可以在中国产生与美国类似的影响。

中国美国商会认为，中国服务业的开放对中国的持续发

展至关重要，因此应积极推进，使国内经济直接获益。这

种开放还能印证中国对中美双边投资协定谈判的坚定支持。

此外，允许更多外资进入中国服务业将为中国受过高等教

育的劳动力创造就业机会，使中国能够提供更高质量和附

加值的商品，这也有助于个人收入水平的提高。

自由贸易区的发展以及近期其他一些政策举措表达了政

府扩大各类服务行业市场准入的意愿（比如，《国务院意

见》、《北京试点方案》），这些举措促进了积极的发展，

应予以加强和鼓励。

2015 年 2 月 14 日发布的《国务院意见》首次阐明了中

国政府关于服务贸易的战略目标。根据《国务院意见》，

服务行业市场准入和行政审批要求都将降低。一连串的措

施相继公布，其中包括计划向国内民营资本和国外资本“大

幅开放金融、教育、文化、医疗领域”，在广泛行业内放

松外国投资者所面临的市场准入限制，培育资本和技术密

集产业领域企业的发展。

此外，在北京市政府制定《试点方案》的过程中，我们

的会员期待着与北京市政府进行交流，借此更好地了解北京

市政府的计划，并为北京服务业的发展做出贡献。这个为期

三年的试点方案旨在在六个领域将北京服务业向外资开放，

这六个领域包括：科技、互联网和信息服务、文化和教育、

商务和旅游、金融服务、卫生和医疗服务。2014 年，服务

业占到北京市 GDP 的 77.9％，这表明北京已经具备了一

个强大的生态系统，为迎接我们的会员给市场带来的效率

和服务质量提升做好了准备。我们的会员期待着与北京市

政府进行交流，以帮助确保试点方案的成功。

然而，到目前为止，我们发现许多此类举措仍亟待澄清，

并且尚未解决在华外国投资者的基本担忧。在服务业中，市

场准入、透明度和正当执法程序、不平等行政审批和不明确

监管障碍等问题仍然需要加以解决，从而实现投资和经济的

增长。许多明确提出的改革举措仍包括了一些合资或当地合

How would you describe your two-year business outlook in China on the following aspects?从以下方面看，您认为贵企业今后两年在华商业前景如何？

Domestic market growth

国内市场发展

Profitability potential竞争压力

Regulatory environment成本竞争力 /

成本水平

100%

80%

60%

40%

20%

0 6%

29%

43%

18%

12%

32%

17%

34%

21%

22%

35%

18%

4% 5%

4%

6%

Pessimistic

悲观

Slightly Pessimistic

略为悲观

Slightly Optimistic

略为乐观

Neutral

中立

Optimistic

乐观

In total, 72 percent of respondents in the service sectors included in this report are optimistic or slightly optimistic about domestic market growth over the next two years. Despite optimism about growth in the potential market, respondents were more cautious about prospective profitability. Respondents are markedly less optimistic about the regulatory environment over the next two years, with only 25 percent responding as optimistic or slightly optimistic.

总体来看，本报告所涉及的服务业的受访者有 72％对未来两年国内市场增长表示乐观或较为乐观。尽管对市场增长潜力持乐观态度，但受访者在预期盈利能力方面则表现的更为谨慎。受访者对未来两年的监管环境明显表示不太乐观，仅有 25％的受访者对此表示乐观或较为乐观。



While each industry represented in this document faces unique operational challenges, our members also face com-mon challenges including market access barriers of various forms and irregular or unclear policies that limit their abil-ity and willingness to invest in China. Such market access limitations greatly inhibit the ability of foreign companies to effectively contribute to the development of China’s ser-vice sectors, and therefore prevent the productivity and effi-ciency that is gained when markets play a decisive role in the economy.

The regulatory environment has understandably changed dramatically over the last two decades in relation to the rapidly evolving economy, although lack of clarity on how many laws are implemented and how regulations are interpreted by administrative and enforcement authori-ties greatly increases risks for investors. Understanding and navigating the regulatory system continues to be a top concern for our members, and we hope the government will continue to act on the Fourth Plenum commitments to bring more transparency and improved rule of law to the regulatory system.

We firmly believe that deeper reforms that show clear chang-es to the existing foreign investment regime and assurances with the BIT are needed to ensure that future market open-ings create the necessary environment for China’s evolving economy. In particular, our service sector member compa-nies note concerns regarding the genuine benefits of future market opening without significant improvements in:

Transparency and Due Process: Unclear investment approv-al procedures, lack of information regarding regulatory deci-sions, and the inability to access open and fair dispute proce-dures have been a primary concern reported by the majority of our service members.

Data localization: A series of recent draft laws and regula-tions propose measures that would greatly limit the abil-ity for service providers to effectively use data within their global infrastructures and supply-chains, limiting the posi-tive impact of future openings.

Government support for SOEs and designated monopo-lies: Numerous service industries in China face an unbal-anced playing field due to government support for SOEs and designated monopolies within their sectors. Such govern-ment preferences, and the benefits the SOEs receive, restrict both foreign and domestic companies’ ability to operate in the market.

Licensing regimes that cater to domestic companies and SOEs: Due to the existence of superseding industrial poli-cies, our members are concerned that existing procedures under China’s domestic investment regime will continue to adhere to policies that discriminate against foreign-invested companies.

Overly broad definitions of national security: China’s new National Security Law includes broad economic, cultural, and social interests in its definition of national security, rais-ing concerns as to the potential impact of national security reviews on foreign investment in the service sector.

CONCLUSION

AmCham China respectfully urges both the US and Chinese governments to prioritize the negotiations of the BIT, and to carefully review the concerns listed in this paper and con-sider their likely adverse impact on future US investments and operations in the service sector in China. We are hope-ful that the Chinese government will accelerate service sec-tor market access for US businesses and we recommend the following:

For the Chinese Government:

• Further open markets and provide clarification on ongoing reform initiatives, such as the FTZs, Beijing Pilot Program and the State Council Opinions.

• Take steps to address cross-industry concerns such as:

w Improve transparency and due process by pub-lishing internal guidelines that govern the admin-istration of all companies and judicial decisions;

w Ensure the economy has seamless flows of data across borders, and refrain from data localization policies that limit trade;

w Limit government support for SOEs and desig-nated monopolies that constrain market forces and impede foreign participation;

w Remove licensing regimes that cater to domes-tic companies and SOEs by providing timely responses to licensing approval applications with sufficient explanations of the examination results; and

w Narrowly tailor definitions of national security to achieve legitimate security objectives consis-tent with the “OECD Guidelines for Recipient Countries Investment Policies Relating to National Security.”

For the US Government:

• Consider the long-term impact on market access of the cross-industry concerns raised in this report and the inclusion of these issues within the BIT text to ensure the intended full benefit of the trea-ty is effectively reached within China’s unique



作伙伴要求，并且范围有限，同时关于行政过程应确保外国

企业和当地企业实现公开竞争或机会均等地参与行业标准的

制定，几乎没有提供任何保证。

跨行业问题

上述改革措施已经明确对外资开放的意图，同时中国美

国商会认为通过“外商投资产业指导目录”、自由贸易区以

及“北京试点方案”实施的对外资服务提供商有意义的市场

开放为外国服务提供商增加在华投资提供了机会。最近就双

边投资协定中国提出的初步负面清单以及与中国政府官员进

行的相关讨论表明，该初步负面清单并没有充分满足热衷于

加快谈判进程的美国企业的期待。此外，许多企业报告称他

们被中国政府官员告知，在双边投资协定完成之前，任何进

一步的市场开放都将暂停。中国美国商会大力支持加快谈判

进程，尽管我们认为，中国政府在双边投资协定签署之前进

行市场开放和实施改革将有利于中国经济和中国消费者，同

时能够发出实实在在的信号，即中国有意为外国公司提供有

意义的市场准入。这将反过来有助于在美国就双边投资协定

谈判获得更广泛的产业支持。

虽然本文中涉及到的每个行业均面临着各自独特的运营

挑战，但我们的会员也面临着一些共同的挑战，其中包括各

种形式的市场准入壁垒、不规范或不明确的政策，而这些都

抑制了他们在华投资的能力和意愿。此类市场准入限制极大

地抑制了外国公司有效促进中国服务行业发展的能力，并因

此而阻碍了当市场在经济中发挥决定性作用时本能够实现的

生产力和效率提升。

在过去的二十年中，伴随着经济的迅速发展，监管环境

发生了翻天覆地的变化，这是可以理解的，尽管如此，但在

到底有多少法律被实施以及行政执法部门如何对法规进行解

读等方面缺乏明确性，从而大大增加了投资者的风险。对我

们的会员来说，了解和驾驭监管体系依然是最关心的问题，

我们希望政府能够继续履行四中全会承诺，提高监管体系的

透明度，提升监管体系的法治水平，而上述监管体系正是我

们的会员所需面对的。

我们坚信，进行更深层次的改革是必要的，并需要对现

有的外商投资制度进行明显改变，在双边投资协定中确定新

的承诺，从而确保未来的市场开放能够为中国经济创造出所

需要的环境。特别是，我们服务行业的会员企业注意到，他

们关于未来市场开放所带来的实际好处的担心并没有发生显

著改善，这些担心包括：

透明度和正当程序：根据我们大多数服务业会员的报告，

投资审批程序不明确、缺乏监管决策信息和公开而公平的争

端解决程序已经成为他们的主要担心问题。

数据本地化：最近的一系列法律法规草案提出了一些措

施，而这些措施将极大地限制服务提供商有效使用其全球基

础设施和供应链中数据的能力，并且将限制未来开放本应产

生的积极影响。

政府支持国有企业和指定垄断企业：由于在行业内政府

支持国有企业和指定垄断企业，因此，在中国许多服务行业

都面临着不平衡竞争环境。此类政府偏好以及国有企业所获

得的利益限制了国外和国内企业的市场运作能力。

迎合国内公司和国有企业的许可制度：由于替代产业政

策的存在，我们的会员担心中国国内投资制度下的现有程序

将继续坚持歧视外资企业的政策。

国家安全的定义过于宽泛：中国新的《国家安全法》在

定义国家安全时宽泛地将经济、文化、社会利益包括在内，

因此导致外界担心这可能会对与服务业外商投资相关的国家

安全审查带来潜在影响。

结论

中国美国商会恳请中美两国政府优先进行双边投资协定

的谈判工作，并认真研究本报告所列的各种担忧，并对这些

因素对未来美国在中国服务行业的投资和运营可能造成的不

利影响予以考虑。我们希望中国政府能够加快美国企业服务

业市场准入，在此我们提出以下建议：

对于中国政府：

• 进一步开放市场，并就正在进行的改革举措进

行澄清，如自由贸易区、北京试点方案和国务

院意见。

• 采取切实步骤解决跨行业问题，如：

w通过发布对所有公司和司法判决都具有约束力

的内部指导方针改善监管透明度和正当司法程

序；



market. In particular, the concerns to services companies include: transparency and due process, data localization, government support for SOEs and designated monopolies, licensing regimes that cater to domestic companies and SOEs, and overly broad definitions of national security.

For Both Governments:

• Pursue the rapid completion of a high-standard BIT that ensures the intended benefits of the treaty within China’s unique market, and ensure the service industries included in this report are excluded from the BIT negative list.

• Utilize the upcoming JCCT dialogues to discuss the benefits of foreign service firms in China’s economy and areas for improvement that can build support for the ongoing BIT negotiations.

The recommendations highlighted in each of the follow-ing sections emphasize further opportunities to open and improve the business environment for service industries and promote greater investment in the service sector. We wel-come opportunities to work with Chinese government agen-cies to explore these recommendations and work towards the further opening of China’s service sector in support of the overall economic reform agenda.



w确保经济实现跨境数据流无缝对接，限制那些

对贸易有限制作用的数据本地化政策；

w限制那些制约市场力量并阻碍外资参与的政府

对国有企业和指定垄断企业的支持；

w及时答复许可审批申请并对审查结果进行充分

说明，借此消除那些迎合国内公司和国有企业

的许可制度；以及

w对国家安全定义进行细化，从而实现与《经合

组织关于投资接收国事关国家安全的投资政策

的指导原则》相一致的合法的安全目标。

对于美国政府：

• 为确保双边协定的既定成果能在中国市场得以

实现，望考虑本报告所提出的跨行业问题对市

场准入的长期影响，以及协定中提到的此类问

题。对于服务业企业，这些担忧包括：透明度

和正当程序、数据本地化、政府支持国有企业

和指定垄断企业、迎合国内公司和国有企业的

许可制度以及过于宽泛的国家安全定义。

对于两国政府：

• 尽快确立完整且高标准的双边投资协定，确保

协定的既定成果能在中国市场得以有效实现，

并确保确保本报告所包括的服务行业被排除在

双边投资协定负面清单之外。

• 利用即将到来的中美商贸联委会对话就外国服务

企业对中国经济带来的好处以及有待改进的方面

进行讨论，借此为正在进行的双边投资协定谈判

提供支持。

以下各节中予以重点突出的各项建议强调了开放并完善

服务行业经营环境，促进服务业投资的更多机会。我们希望

有机会与中国政府机构共同探讨这些建议，朝着进一步开放

中国服务业并为整体经济改革议程提供支持这一目标共同努

力。

IICharts图表



Relaxation of Restrictions in FTZs

Several Opinions of the State Council

on Accelerating the Development of Service

Trade

State Council Reply to the Beijing Municipality’s Plan

for the Comprehensive Pilot Program to Expand and Open up the Service

Industry

Banking, Capital Markets, and E-Payment

• Fund remittance and conversion for cross-border direct investments into or originating out of the Shanghai FTZ is to be handled directly by banks in the Shanghai region without prior clearance from SAFE;

• Institutions in the FTZ may finance RMB and foreign currency transactions from overseas;

• The foreign currency cross-border cash-pooling program is to be simplified;

• Enterprises in the FTZ are encouraged to engage in round-trip RMB cash pooling as well as centralized cross-border settlements under the current account for their domestic and overseas affiliates;

• The PBOC shall also support the provision by banks of over-the-counter commodity derivative trading; and

• Individuals and enterprises located in the FTZ may open special Free Trade Accounts at any bank in the FTZ or in the Shanghai municipality in order to benefit from the liberalized policies of the FTZ.

Relax foreign investment restrictions in accounting and auditing.In general, not specifically relating to foreign service providers: Emphasize financial services as part of the efforts to expand the volume of trade in services. Encourage financial institutions to provide innovative products and services and to carry out supply chain, overseas M&A, accounts received, warehouse receipt, lease, etc. financing.

Support qualified private capital and foreign capital to enter into financial services, allow foreign financial institutions to set up foreign-invested banks, and private capital and foreign financial institutions to co-found Sino-foreign joint venture banks, and enable foreign financial institutions and private capital to provide financial services and participate in market competition on a level playing field.

Construction, Engineering, and Design

• No approval process for foreign investors establishing design and construction companies.

• Foreign investors in design companies will not be required to demonstrate overseas project experience on the first application for a design qualification.

• Wholly foreign-owned construction companies will be able to provide services on a wider range of projects in Shanghai.”

Relax foreign investment restrictions in architecture and design.

Cancel the requirement for foreign-invested engineering design (excluding engineering survey) enterprises that provide services in Beijing to possess a performance record of engineering design (2 or more projects outside of China) when first applying for qualification.

PROMOTION AND PROPOSED OPENINGS OF SERVICE SECTOR INDUSTRIES

The Chinese government has identified development of the service sector as a core focus of its economic restructuring. Several initiatives have been designed to promote these industries, including experimental reforms in the Pilot FTZs, in addi-tion to the release of policy initiatives such as the “Several Opinions of the State Council on Accelerating the Development of Service Trade” and the “State Council Reply to the Beijing Municipality’s Plan for the Comprehensive Pilot Program to Expand and Open up the Service Industry.” The below chart depicts some of the areas of investment that have already been opened to foreign service providers within the Pilot FTZs, in addition to the announced areas to be promoted by the two key State Council pronouncements.



关于发展和开放服务业的建议

中国政府已经确定了将发展服务业作为经济结构调整的核心重点。已经设计了几项举措从而促进这些行业的发展，除

了已经发布的政策措施，如《国务院关于加快发展服务贸易的若干意见》和《国务院关于北京市服务业扩大开放综合试点

总体方案的批复》，还包括试点自由贸易区改革试点。除了上述两个重点国务院通知业已公布的推进领域外，以下图表展

示了在试点自由贸易区中已经向外国服务提供商开放的某些投资领域。

自由贸易区放宽限制国务院关于加快发展服务

贸易的若干意见

国务院关于北京市服务业扩大开放综合试点总体方

案的批复

银行、资本市场及电子支付

• 在上海自贸区进行的跨境直接投资项下的资金汇兑可在上海的银行直接办理，无需提前在外汇管理局进行登记核准；

• 自由贸易区机构可进行本外币境外融资；

• 简化外币跨境现金池业务程序；

• 鼓励自由贸易区的企业参与人民币双向现金池业务以及在当前账户下与其国内或海外分支机构集中进行跨境结算；

• 中央银行支持银行开展大宗商品衍生品的柜台交易；

• 自由贸易区的个人及企业可以在自由贸易区或上海市的银行办理自由贸易账户以享受自贸区的便利政策。

放开会计审计领域外资准入限制。

一般而言，并非专门针对海外服务供应商：重点培育金融服务是扩大服务贸易规模的举措之一。鼓励金融机构创新金融产品和服务，开展供应链融资、海外并购融资、应收账款质押贷款、仓单质押贷款、融资租赁等业务。

支持符合条件的民间资本和外资进入金融服务领域, 便利外资金融机构设立外资银行、民营资本与外资金融机构共同设立中外合资银行，使外资金融机构和民营资本在平等的市场环境下提供金融服务和参与市场竞争。

建筑、工程及设计

• 取消对海外投资者设立建筑设计公司的审批流程。

• 设计公司的海外投资者在首次申请设计资质时无需提供海外项目业绩。

• 外资独营建筑公司可在上海提供更多项目的服务。

放开建筑及设计领域外资准入限制。

对区域内为北京市提供服务的外资工程设计（不包括工程勘察）企业，取消首次申请资质时对投资者的工程设计业绩(两个或以上的海外项目）要求。






Trade



Industry

Healthcare Services

Medical institutions can be set up as an equity or cooperative joint venture.

Relax foreign investment restrictions in eldercare.

Subject to regional medical institution deployment and foreign investment risk assessment, gradually relax restrictions on Sino-foreign joint venture medical institutions, adjust approval authority, and enable investors to file their applications in a more convenient manner. Allow foreign investment in non-profit medical institutions and provide basic medical and health services. Promote professional health services, remove restriction on foreign investment in the pension industry, and guide foreign investment to rehabilitation nursing, old-age nursing, home nursing and other nursing services as well as medical and health services such as mother and baby care and mental health services. Additional health resources must be subject to approval in accordance with relevant plans and criteria.

Information and Communications Technology

Limited increases in market access for foreign value-added telecommunications companies.

In general, not specifically relating to foreign service providers: Emphasize computer and information services as part of the effort to expand the volume of trade in services. Utilize new technologies such as big data, internet of things, mobile internet, and cloud computing to promote innovative service trade practices.

Pilot the registration of representative offices established in Zhongguancun by foreign science & technology entities established by foreign institutions or individuals to foster concerted innovation and development of social organizations at home and abroad. Encourage foreign investment in software and information services, integrated circuit design and other emerging sectors, and promote service and business innovation for cloud computing, internet of things, mobile internet and next-generation internet. Attract foreign companies to set up R&D centers, offshore service centers and headquarters in Beijing, and carry out joint venture and cooperation by introducing talents, technologies and cooperative development.

Insurance • Establishment of wholly foreign-owned specialized health insurance companies;

• Establishment of insurance company branches by insurance companies;

• Development of shipping insurance, including brokers;

• Abolishment of the pre-approved reinsurance requirement;

• Product innovation by insurance companies, and continuous expansion of the scope of liability insurance.

In general, not specifically relating to foreign service providers: Emphasize insurance services as part of the efforts to expand the volume of trade in services. Encourage insurance companies to provide innovative products and businesses.

Allow the establishment of foreign-invested specialized health and medical insurance institutions.






案的批复

医疗服务可以以合资、合作形式设立医疗机构。

放开养老服务领域外资准入限制。

按照逐步开放、风险可控的原则，在符合区域医疗机构设置规划和进行外资投资风险评估的基础上，逐步放宽中外合资、合作办医条件，调整审批权限，便利投资者申报。允许外资举办非营利性医疗机构、提供基本医疗卫生服务。推动健康服务专业化发展，放开养老领域外资准入限制，引导外资投向康复护理、老年护理、家庭护理等护理服务以及母婴照料服务、心理健康服务等医疗卫生领域。新增卫生资源须按照有关规划和标准进行审批。

信息及通信技术外资电信增值业务公司市场准入得到有限的放宽。

一般而言，并非专门针对海外服务供应商：将计算机和信息服务作为扩大服务贸易规模的领域之一重点培育。依托大数据、物联网、移动互联网、云计算等新技术推动服务贸易模式创新。

对境外科技、教育、经济类非政府组织在中关村设立代表机构，以及境外组织或个人发起设立科技、经济类民办非企业单位进行试点登记，形成国内外社会组织协同创新、相互促进的良好环境。

鼓励外资进入软件及信息服务、集成电路设计等新兴产业，推动云计算、物联网、移动互联网、下一代互联网等服务模式和商业模式创新。吸引跨国公司在京设立研发中心、离岸服务中心、经营总部，通过人才引进、技术引进、合作开发等方式开展合资合作。

保险业 • 设立外资独营专业健康保险公司；

• 保险公司设立保险分支机构；

• 发展航运保险，包括航运保险经纪人；

• 取消再保险事前审批；

• 保险公司产品创新，并不断扩大责任保险范围。

一般而言，并非专门针对海外服务供应商：将保险服务作为扩大服务贸易规模的领域之一重点培育。鼓励保险机构创新保险品种和保险业务。

允许设立外资专业健康医疗保险机构。

法律服务《中国（上海）自由贸易试验区中外律师事务所互派律师担任法律顾问的实施办法》《中国（上海）自由贸易试验区中外律师事务所联营的实施办法》。

N/A N/A






Trade



Industry

Legal Services “Implementing Measures of the China (Shanghai) Pilot Free Trade Zone for the Mutual Assignment of Lawyers as Legal Consultants by Chinese and Foreign Law Firms” and “Implementing Measures of the China (Shanghai) Pilot Free Trade Zone for Joint Venture Operations between Chinese and Foreign Law Firms.”

N/A N/A

Media and Entertainment

Relaxations of restrictions on performance brokerages, entertainment venues, and the making and sales of gaming consoles [recently extended nationwide].

N/A Diversify culture services, choose the areas with a concentration of culture and entertainment industries, and allow the establishment of wholly foreign-invested performance brokerage firms to provide service throughout Beijing.

Real Estate Restrictions from 2013 version of negative list removed in the 2015 revision.

N/A N/A

Retail, E-Commerce, Distribution and Logistics

Retail Restrictions on the retail and wholesale of the following items have been lifted: fertilizers, agricultural film (to cover greenhouses), the sale of petrol through petrol stations and the sale of books, newspapers and magazines.

Relax foreign investment restrictions in commerce, logistics, and e-commerce.In general, not specifically relating to foreign service providers: Expand export/Customs services, international logistics, transit, R&D, international settlements, distribution, and warehouse functions. Enhance capacity for cross-border service delivery.

N/A

E-Commerce Foreign investors are now permitted to establish wholly foreign-owned e-commerce companies in the FTZ; Foreign investors can now apply for VATS Permits to engage in “e-commerce business” in the FTZ, however the definition of “e-commerce business” has not been precisely defined.

Carry out the comprehensive pilot of electronic invoices and accounting archives, improve cross-border e-commerce operation and management, and expand international market channels. Remove foreign investment restrictions in commerce & logistics, e-commerce and the like.

Express Delivery

While various Customs and other relevant regulations will benefit the express delivery industry, direct foreign investment in this sector is still largely restricted.

N/A






案的批复

媒体与娱乐对经济公司、娱乐场所、游戏机制作与销售的限制被放宽【近期该政策扩大至全国范围】。

N/A 文化服务多样化，选择文化娱乐业聚集的特定区域，允许设立外商独资演出经纪机构，在北京市域范围内提供服务。

房地产 2015年的修改将2013年负面清单中对该行业的限制移除。

N/A N/A

零售、电子商务、分销和物流

零售业对以下物品零售与批发的限制被解除：肥料；农用薄膜（用以覆盖温室）；在加油站销售汽油的限制被解除；销售书籍、报纸与杂志的限制被解除。

放开商贸物流及电子商务领域外资准入限制。

一般而言，并非专门针对海外服务供应商：拓展海关特殊监管区域和保税监管场所的服务出口功能，扩充国际转口贸易、国际物流、中转服务、研发、国际结算、分销、仓储等功能。

提升服务跨境交付能力。

N/A

电子商务尽管海外投资者已被允许在自由贸易区设立外商独资经营的电子商务公司，海外投资者也能在自由贸易区经营“电子商务”时申请增值业务许可，然而对于“电子商务”尚未有明确的定义。

开展电子发票与电子会计档案综合试点，完善跨境电子商务运行模式和管理政策，拓展国际市场渠道。放开、商贸物流、电子商务等领域外资准入限制。

快递虽然部分海关部门及其他相关条例会有利于快递行业发展，针对该行业的外商直接投资仍然受到很大的限制。

N/A



2015 Foreign Investment Catalogue Restrictions

Free Trade Zone Negative List Restrictions

Other Investment Constraints

Banking, Capital Markets, and E-Payment

Commercial Banking

Shares of a single overseas financial institution and related parties under its control or joint control as the founder or strategic investor may not exceed 20% in a single Chinese commercial bank; Total shares of multiple overseas financial institutions and related parties under its control or joint control as the originator or strategic investors may not exceed 25%; Overseas financial institutions investing in rural small and medium-sized financial institutions must be banks.

Apart from shareholder structural and qualification requirements, foreign banks are also restricted as follows:1. Serving as the issuing, cashing,

collecting and paying agent and offering bank card services as stated in the Law of the PRC on Commercial Banks (prohibited); RMB business for domestic Chinese citizens provided by foreign bank branches (prohibited, except for the taking of time deposits over RMB 1 million each from domestic Chinese citizens);

2. The working capital of foreign bank branches shall be provided by the head office unconditionally, any part of which shall exist in certain form and be in accordance with concerning administrative requirements;

3. Foreign bank branches shall maintain adequate amounts of RMB working capital (no less than 8%);

4. Foreign banks shall meet the minimum requirement for years operating in China to be licensed to provide RMB services.

1. The inability of foreign banks to simultaneously apply for multiple licenses for new products and services;

2. An unequal playing field where different regulations are applied to domestic and foreign banks;

3. A lack of transparency and consultation before new policies or regulations are released; and

4. Restrictions on foreign banks participating in the bond market.

Securities/Credit Ratings

Securities companies (only engaged in underwriting, advice and guarantee of RMB common stock, preferred stock, government bonds and corporate bonds as established, brokerage of foreign shares and brokerage and proprietary trading in government bonds and corporate bonds. After two years of development, qualified companies can apply to expand their business scope. Foreign ownership may not exceed 49%); Security investment fund management companies, foreign ownership may not exceed 49%.Futures companies (majority of shares must be Chinese-held).

Futures companies (restricted, equity controlled by Chinese party);Investment in securities companies (restricted; foreign participation may not exceed 49%);Securities investment fund management companies (restricted, proportion of foreign investment may not exceed 49%)Membership in stock or futures exchanges (prohibited);A-share security or futures accounts (prohibited).

Even if investment restrictions are relaxed, foreign brokers will still face challenges gaining market share due to limited branch networks which will make it difficult to compete with domestic brokers in retail services. Further constraints include: 1. Ownership cap of 49% on

foreign investment in Chinese credit rating agencies (CRAs);

2. Rules and practices that put domestic CRAs with foreign shareholders at a disadvantage;

3. Conduct rules that at times deviate significantly from international standards.

E-Payment N/A N/A 1. The need for implementing regulations regarding the opening of bank card clearing to foreign competition;

2. Bank card swiping fees; 3. Chip standards.

KEY RESTRICTIONS ON SERVICE SECTOR INDUSTRIES

Despite proposals to further open the service sector to foreign investment, our members in these industries still face a number of pre- and post-market access barriers. The below chart details the areas of investment that are still restricted or prohibited by the Foreign Investment Catalogue and the FTZ Negative List. It additionally highlights other types of restrictions regu-larly faced by these service industries.



2015年外商投资产业指导目录中的限制

自由贸易区负面清单中的限制其他投资限制


银行单个境外金融机构及被其控制或共同控制的关联方作为发起人或战略投资者向单个中资商业银行投资入股比例不得超过20%，多个境外金融机构及被其控制或共同控制的关联方作为发起人或战略投资者投资入股比例合计不得超过25%，投资农村中小金融机构的境外金融机构必须是银行类金融机构。

除符合股东机构类型要求和资质要求外，外资银行还受限于以下条件：

1. 外国银行分行不可从事《中华人民共和国商业银行法》允许经营的“代理发行、代理兑付、承销政府债券”、“代理收付款项”、“从事银行卡业务”，除可以吸收中国境内公民每笔不少于100万元人民币的定期存款外，外国银行分行不得经营对中国境内公民的人民币业务；

2. 外国银行分行应当由总行无偿拨付营运资金，营运资金的一部分应以特定形式存在并符合相应管理要求；

3. 外国银行分行须满足人民币营运资金充足性（8%）要求；

4. 外资银行获准经营人民币业务须满足最低开业时间要求。

1. 银行不能同时申请多项新产品和服务牌照；

2. 内外资银行适用不同的监管法规，无法公平竞争；

3. 新政策或法规出台缺乏透明度和意见征求程序;

4. 外资银行参与债券市场面临诸多限制。

证券、信用评级

证券公司（设立时限于从事人民币普通股、外资股和政府债券、公司债券的承销与保荐，外资股的经纪，政府债券、公司债券的经纪和自营；设立满2年后符合条件的公司可申请扩大业务范围；外资比例不超过49%）、证券投资基金管理公司（外资比例不超过49%）期货公司（中方控股）。

期货公司属于限制类，须由中方控股;

限制投资证券公司、外方参股比例不超过49%;

证券投资基金管理公司属于限制类，外资比例不超过49%;

不得成为证券交易所的普通会员和期货交易所的会员;

不得申请开立A股证券账户以及期货账户。

即使限制有所放松，外资券商全资子公司进入中国，他们要想获取市场份额依然面临重重挑战。外资券商在华网点有限，在零售服务方面难以与国内券商竞争。进一步的限制还包括：

1. 外商投资中国信用评级机构（CRA）的所有权比例不得高于49%；

2. 相关规定和实践中的做法，不管是书面还是口头的，时常将有外商投资的国内CRA置于不利境地；

3. 中国监管部门制定或建议的某些行为守则也与国际标准显著不同。

电子支付 N/A N/A 1. 缺少允许外国电子支付提供商参与的法规；

2. 银行卡刷卡手续费;

3. 芯片标准。

服务业面临的主要限制

尽管针对进一步对外资开放服务业提出了很多建议，但我们处于这些行业的会员仍面临许多事前和事后市场准入壁垒。

下面的图表详细说明了目前仍然被“外商投资产业指导目录”和“自由贸易区负面清单”限制或禁止的投资领域。另外，

图表还强调了这些服务行业经常面临的其他类型的限制。







[The 2015 Catalogue lifted restrictions on the construction of high-end hotels and office buildings and international exhibition centers.]

[FICE exclusions in the right-hand column were partially removed in 2013 in the SHFTZ.]

For FIDES: 1. Difficulty in obtaining proper

design qualifications; 2. Uncertainty regarding hiring

and residency requirements for foreign employees.

For FICES: 1. Restrictions to undertaking

foreign-funded projects or projects with foreign investment =/> 50% except for those that cannot be undertaken by Chinese construction enterprises due to technical difficulties.

Healthcare Services

Medical institutions are limited to equity or cooperative joint ventures. [The 2015 Catalogue encourages foreign investment in service agencies for the elderly, the handicapped, and children and retirement organizations.]

Healthcare institutions (limited to equity/cooperative joint venture operations).

1. High tax rates; 2. Doctors are not encouraged to

obtain licenses to practice at more than one site (straining availability of doctors);

3. Challenges to pharmacies due to drug pricing regime (in flux);

4. Inability for private hospitals to be reimbursed via Yibao (under revision).

Information and Communications Technology

Foreign investment in telecommunications services is capped at 49 percent for basic services and 50 percent for VATS.

Telecommunications companies (restricted), limited to those telecommunications industries that China promised to open as part of joining the WTO, of which: value-added telecommunications services (foreign investment generally not to exceed 50%, excluding e-commerce); basic telecommunications services (proportion of Chinese capital to be not less than 51%).

1. Security controls; 2. A range of protectionist

measures that extend to any IT sector utilizing Internet connectivity, such as equity caps and restrictions on VATS (including cloud computing, information security, and import and procurement of hardware and software), technical standards that often diverge from global standards, Internet content restrictions, and privacy and cross-border data flow restrictions.

Insurance Foreign equity in life-insurance companies shall not exceed 50%.

Insurance companies (restricted). For life insurance companies, the proportion of foreign investment may not exceed 50%, and the share of domestic insurance companies in insurance asset management companies shall be not less than 75%. Foreign insurance companies applying to establish foreign-invested insurance companies in China or foreign financial institutions investing in Chinese insurance companies must meet regulatory requirements on years of operation, total assets, etc.

1. Domestic and foreign investment branch applications are not reviewed and approved in an equal manner;

2. Restrictions on sales and service channels;

3. Licensing challenges; 4. Two year seasoning

requirement to establish a representative office.

Legal Services The 2015 Catalogue categorizes investment in the area of “consulting on Chinese legal matters” to be “prohibited” (as opposed to “restricted" in the 2011 Catalogue). This revision reflects previous further restrictions to the industry as set by MOJ Order 92 and State Council Order 338.

Foreign legal firms may enter China only as representative offices. Representative offices and representatives sent to China (restricted, must be approved by the Chinese judicial administrative department).

1. An unnecessarily difficult, protracted, and unpredictable registration process for the establishment of offices;

2. The inability to employ PRC-qualified lawyers so that they can provide comprehensive legal services to their clients;

3. Prohibitions against participation in important meetings at government departments involving their clients; and

4. Discriminatory taxation.






[2015年外商投资产业指导目录删减了对建造高档酒店、办公楼及国际会展中心的限制]。

[右侧栏目中部分外商投资企业限制于2013年在上海自由贸易区解除]。

外资设计企业面临的困难：

1. 申请设计资质；

2. 外资企业外籍员工雇用及居住政策的不确定性。

外资建筑企业面临的困难：

1. 外商独资建筑企业只能参加外商投资项目或外资比例达到或超过百分之五十的项目，中国建筑企业因为技术困难而无法参加的项目除外。

医疗服务医疗机构（限于合资、合作）[2015年外商投资产业目录鼓励外商对为老年人、残疾人及儿童提供服务的机构以及养老机构进行投资]。

医疗机构属于限制类，限于合资、合作。

1. 高额税费；

2. 政策不利于医师有两个正式执业地点(医疗工作者数量紧张)；

3. 药房面临着药品定价机制（修订中）带来的的挑战；

4. 医保对私立医疗机构的医疗服务不提供报销（政策修订中）。

信息及通信技术增值电信业务（外资比例不超过50%，电子商务除外），基础电信业务（外资比例不超过49%）。

电信公司属于限制类，限于中国入世承诺开放的电信业务，其中：增值电信业务（电子商务除外）外资比例不超过50%，基础电信业务经营者须为依法设立的专门从事基础电信业务的公司，且公司中国有股权或者股份不少于51%。

1. 信息安全控制；

2. 一系列保护主义措施延伸至所有使用互联网的IT行业，包括电信增值服务的持股上限和限制，其中包括云计算、软硬件进口和采购限制，信息安全限制；以及与国际标准存在差异的技术标准，互联网内容限制，隐私和跨境数据流限制。

保险业保险公司（寿险公司外资比例不超过50%）。

保险公司属于限制类（寿险公司外资比例不超过50%），境内保险公司合计持有保险资产管理公司的股份不低于75%。申请设立外资保险公司的外国保险公司，以及投资入股保险公司的境外金融机构（通过证券交易所购买上市保险公司股票的除外），须符合中国保险监管部门规定的经营年限、总资产等条件。非经中国保险监管部门批准，外资保险公司不得与其关联企业从事再保险的分出或者分入业务。

1. 外资保险公司在中国境内申请设立分支机构时，与内资保险公司的待遇不同；

2. 销售和服务渠道的限制；

3. 许可与审批的挑战；

4. 设立代表机构2 年以上的经营期限资格要求。

法律服务 2015年外商投资产业指导目录“禁止”了外商对“中国法律事务咨询”的投资。（2011年指导目录则是“限制”对该产业投资）。该变更反映了此前司法部第92号令以及国务院令对该行业的进一步限制。

外国律师事务所只能以代表机构的方式进入中国，在华设立代表机构、派驻代表须经中国司法行政部门许可。

1. 成立办事处的注册手续过于繁杂，过程漫长而且结果难以预料;

2. 无法雇用中国律师，所以无法为客户提供全方位法律服务；

3. 不允许出席客户与政府部门之间的会议；

4. 差别性的税收政策。







Restricted: Production and publication of broadcasting and TV programs and film-making (limited to contractual JVs); operation of cinemas (Chinese partner must hold the majority of shares); operation of large theme parks; Brokering agency of stage performances (Chinese partner must hold the majority of shares).Prohibited: News agencies; publication of books, newspapers & periodicals; publication and production of A/V products and e-publications; radio & TV stations, radio & TV transmission networks at various levels (transmission stations, relaying stations, radio and TV satellites, satellite up-linking stations, satellite receiving stations, microwave stations, monitoring stations, cable broadcasting and TV transmission networks); companies publishing and playing broadcast and TV programs; companies making and issuing films; news websites, network A/V services, Internet service locations, internet art management (except music).

Extensive prohibitions on investment in online news and publishing (excluding music services). Extensive prohibitions in television and radio programming, foreign media agencies, and television and film production is subject to the licensing and approval systems.

1. Restrictions on the number of films imported on a revenue-sharing basis;

2. Imported television content is restricted;

3. Chinese cable operators are prohibited from carrying foreign channels;

4. Live entertainment limited by a lack of transparency, excessive regulations, and bureaucracy;

5. Foreign news media blocked and journalists targeted;

6. Piracy;7. Censorship;8. Lack of regulatory clarity and

enforcement.

Real Estate Previous restrictions to the industry from the 2011 Catalogue removed in 2015 edition.

Restrictions from initial version of negative list removed.

1. Lack of consistent quality and regulatory enforcement;

2. Lack of transparency.

Retail, E-Commerce, Distribution, and Logistics

Retail The 2015 Catalogue removed restrictions on the wholesale, retail and distribution of vegetable oil, sugar, and fertilizer; the 49% cap on foreign ownership of companies engaging in business with >30 retail stores has been lifted.

Monopoly system adopted for tobacco, central oil and grain storage; “franchise" adopted for duty-free commodities, and lottery tickets.

1. Lack of strong regulatory and enforcement mechanisms in the upstream portion of the supply chain;

2. Unfair responsibility placed on retailers for food safety issues;

3. Requirements by city/district governments to establish WFOEs instead of branch offices;

4. Professional claimants.

E-Commerce 50% cap on foreign ownership has been removed.

Although foreign investors are now permitted to establish wholly foreign-owned e-commerce companies in the FTZ and foreign investors can now apply for VATS permits to engage in “e-commerce business” in the FTZ, the definition of “e-commerce business” has not been precisely defined.

N/A

Express Delivery

Investment in postal service companies and domestic express delivery of letters is prohibited.

Investment in postal service companies, engaging in postal service operations, and the operation of domestic express delivery of letters services is prohibited.

N/A





传媒与娱乐限制：广播电视节目、电影的制作业务（限于合作）; 电影院的建设、经营（中方控股）; 大型主题公园的建设、经营; 演出经纪机构（中方控股）。

禁止: 新闻机构; 图书、报纸、期刊的出版业务; 音像制品和电子出版物的出版、制作业务；各级广播电台（站）、电视台（站）、广播电视频道（率）、广播电视传输覆盖网（发射台、转播台、广播电视卫星、卫星上行站、卫星收转站、微波站、监测台、有线广播电视传输覆盖网）; 广播电视节目制作经营公司; 电影制作公司、发行公司、院线公司；新闻网站、网络出版服务、网络视听节目服务、互联网上网服务营业场所、互联网文化经营（音乐除外）。

禁止投资网络新闻及出版业（音乐服务除外）。禁止设立电视、广播及外国新闻机构。电视及电影产品实行审批及许可制度。

1. 在按照收入分成的基础上，进口影片有数量限制；

2. 外国电视内容进入中国受限制；

3. 禁止中国有线电视运营商引入外国频道；

4. 现场演出节目的市场准入仍然受到缺乏透明度、过度监管、官僚主义以及其他抑制行业增长的管制措施的限制；

5. 外国新闻媒体被屏蔽，外国记者被排斥与针对；

6. 盗版；

7. 审查制度；

8. 缺乏监管透明度与执法力度。

房地产 2011年外商投资产业指导目录中对该行业投资的限制在2015年指导目录中被移除。

[负面清单初版中对该行业的限制已移除]。

1. 缺乏质量及执法一致性；

2. 缺乏透明度。


零售业 [2015年外商投资产业目录移除了对批发业，零售业，植物油、糖、肥料分销的限制；设立超过30家零售店的企业外资比例不超过49%的规定被取消]。

对烟草实行专营制度；对中央储备粮（油）实行专营制度。对免税商品销售业务实行特许经营和集中统一管理。对彩票发行、销售实行特许经营。

1. 缺乏位于供应链上游的强有力的监管和执行机制;

2. 零售商承担着不公平的食品安全责任;

3. 地方政府对零售商建立外商独资企业而非分支机构的要求;

4. 职业索赔人。

电子商务 [外资比例不超过50%的规定被取消]。

尽管海外投资者已被允许在自由贸易区设立外商独资经营的电子商务公司，海外投资者也能在自由贸易区经营“电子商务”时申请增值服务，然而“电子商务”尚未有明确的定义。

N/A

快递邮政公司、信件的国内快递业务被禁止。

禁止经营信件的国内快递服务。禁止投资邮政企业和经营邮政服务。

N/A



1 2 3 4 5

Banking, Capital

Markets, and E-Payment

70%Market access

limitations

45%Unequal approval

process for investments

30%Local/partner

equity requirements

20%Investment approvals

15%Targeted

enforcement for foreign firms


57%Market access

limitations


14%Local/partner

equity requirements

14%Targeted


14%De-facto

technology transfer as a requirement for market access

Healthcare Services

63%Market access

limitations

38%Chinese

government funding provided

solely for domestic competitors

38%Targeted


25%Unequal approval


21%De-facto


Information and Communications

Technology

54%Market access

limitations

34%Targeted


24%Chinese



19%De-facto


19%Local/partner

equity requirements

Insurance67%

Market access limitations

56%Unequal approval


44%Local/partner

equity requirements


Legal Services71%

Market access limitations

35%Local/partner

equity requirements

29%Unequal approval


29%Targeted




71%Market access

limitations

29%Chinese



29%Targeted


21%Unequal approval



Real Estate39%

Local/partner equity requirements

39%Unequal approval


33%Market access

limitations

28%Targeted




36%Chinese



29%Market access

limitations

29%Local/partner

equity requirements

14%Targeted


7%Unequal approval


Which measures below have a limiting impact on your company’s ability and willingness to invest in China?

Nearly across the board, industries report market access limitations as the measure placing the greatest constraint on their investments.

As part of the 2015 Business Climate Survey, our members were asked to choose which measures and practices most greatly limit their company’s ability and willingness to invest in China. The below graphics illustrate member responses according to service-sector industry.



1 2 3 4 5


70%市场准入限制

45%投资审批程序不

公平

30%本土合作者/股

权要求

20%投资审批

15%专门针对外资企业的执法

活动



29%投资审批


权要求

14%专门针对外资企业的执法活动

14%技术转让事实上成为市场准入

要求

医疗服务63%

市场准入限制

38%中国政府资金仅向本国公司开放



公平


要求

信息通信技术54%

市场准入限制




要求


权要求

保险业67%

市场准入限制


公平


权要求

11%投资审批

法律服务71%

市场准入限制


权要求


公平


12%投资审批

媒体与娱乐71%

市场准入限制




公平

21%投资审批

房地产39%

本土合作者/股权要求


公平



17%投资审批





权要求



公平

以下哪些措施抑制了贵企业在华投资的能力和意愿？

所有行业近乎一致地报告称市场准入限制成为他们投资的最大制约措施。

作为《2015 年度商务环境调查》的一部分，我们的会员被要求选择哪项措施和做法最大程度限制了他们公司在华投

资的能力和意愿。下面的图表展示了服务行业会员的反馈情况。



1 2 3 4

Banking, Capital


60%Rule-making that is not transparent, unclear, or

inconsistent

50%Administrative approvals that are unclear or unfair

25%Standards setting

processes that exclude or treat foreign invested

enterprises unequally

15%Judicial processes and enforcement that are

unequal, lack transparency, and lack effective recourse



inconsistent







Healthcare Services


inconsistent








Technology


inconsistent







Insurance56%

Rule-making that is not transparent, unclear, or

inconsistent







Legal Services71%


inconsistent









inconsistent







Real Estate56%


inconsistent












inconsistent




Which of the below practices limit your company’s ability and willingness to invest in China?

Rule-making that is not transparent, unclear, or inconsistent was selected by nearly all industries as the top practice limiting their ability and willingness to invest in China, followed by administrative approvals that are unclear or unfair.



1 2 3 4

Banking, Capital


Administrative authorities or judicial organs rely on

regulations or interpretations that are not public

Regulatory ambiguity that allows regulators to benefit

domestic companies, or limit foreign invested companies

Standards favor domestic technology

There is local discretion in deciding whether to enforce

laws


Public consultation process is not utilized for all proposed laws, or the

comment period is shorter than international practice

/ The lack of licensing rules and procedures create a barrier for market entry




laws

Standards committees limit foreign participation in

standards setting process / Standards favor domestic

technology

Healthcare Services

Public consultation process is not utilized for all proposed laws, or the

comment period is shorter than international practice

Administrative delays in meeting required deadlines

that impede project progressStandards favor domestic

technology

Laws are more strictly enforced or national

campaigns target foreign companies / There is local

discretion in deciding whether to enforce laws


Technology





Standards favor domestic technology


laws / Laws are more strictly enforced or national campaigns target foreign

companies

InsuranceAdministrative authorities or judicial organs rely on




Standards setting process is used to require foreign

technology transfer

There is a lack of effective judicial recourse when administrators abuse

discretion or fail to follow rules

Legal Services


regulations or interpretations that are not public / The

lack of licensing rules and procedures create a barrier

for market entry

Administrative delays in meeting required deadlines

that impede project progress

Foreign attorneys have limited access to legal

hearings and other proceedings



technology


The lack of licensing rules and procedures create a barrier for market entry

Laws are more strictly enforced or national

campaigns target foreign companies





technology

Real Estate Laws and regulations are applied retroactively




laws


standards setting process



standards setting process


regulations or interpretations that are not public / Public consultation process is not

utilized for all proposed laws, or the comment period is shorter than international

practice

There is a lack of judicial independence / Laws are more strictly enforced or national campaigns target

foreign companies

Verbal instructions from authorities that exceed what

is required by law

Which of the below practices limit your company’s ability and willingness to invest in China?Within the four top-level categories, companies noted the following practices as particularly limiting:

This second chart highlights particular concerns expressed by our members regarding the practices that limit their com-pany’s ability and willingness to invest in China. Each category reveals more specifically how these practices affect their industry. For example, while both the Financial and Real Estate service industries cite “rule-making that is not transparent, unclear, or inconsistent” as the most constraining practice on their investments, this practice is manifested most commonly for the financial services industry in the form of administrative authorities or judicial organs who rely on regulations or interpretations that are not public, while the Real Estate industry reported laws and regulations being applied retroactively as a higher concern.



1 2 3 4


60% 立法程序缺乏透明度、

清晰度或一致性

50%行政审批不明确或不

公平

25%标准设定过程将外资企业排除在外或者对外资企业予以不公平对待

15%司法和执法程序不公

平、缺乏透明度和有效追诉措施





公平




医疗服务79%

立法程序缺乏透明度、清晰度或一致性


公平




信息通信技术61%



公平




保险业56%



公平




法律服务71%



公平




媒体与娱乐72%





公平


房地产56%



公平











公平

以下哪些因素抑制了贵企业在华投资的能力 ?

几乎所有行业都选择了立法程序缺乏透明度、清晰度或一致性是抑制他们在华投资能力和意愿的首要做法，其次是行政审

批的不明确或不公平。



1 2 3 4


行政部门和司法机关依赖非公开的法规与法律解释

法规不明晰，监管机构不平等地对待外资企业与

国内企业有利于国内技术的标准地方政府有自由裁量权来

决定某项法律是否适用


并非所有法案都具备公众意见征询程序，或征集公众意见的时间短于国际惯例 / 缺乏申请许可规章制度及程序造成市场

准入壁垒


国内企业

地方政府有自由裁量权来决定某项法律是否适用

标准制定委员会对外企参与标准制定过程的限制 / 有利于国内技术的标准

医疗服务并非所有法案都具备公众意见征询程序，或征集公众意见的时间短于

国际惯例

行政会议拖延阻碍项目进展有利于国内技术的标准

对外企更严格地执行法律及针对外企的国家行动/ 地方政府有自由裁量权来决定某项法律是否适用

信息通信技术行政部门和司法机关依赖非公开的法规与法律解释


国内企业有利于国内技术的标准

地方政府有自由裁量权来决定某项法律是否适用 / 对外企更严格地执行法律及针对外企的国家行动

保险业行政部门和司法机关依赖非公开的法规与法律解释


国内企业

通过标准制定过程要求转让外国技术

对于行政部门滥用自由裁量权或未遵守规章制度的行为缺乏有效的司法

追诉手段

法律服务

行政部门和司法机关依赖非公开的法规与法律解释 / 缺乏申请许可规章制度及程序造成市场

准入壁垒

行政会议拖延阻碍项目进展

外国律师参与听证会及诉讼程序的渠道受限制


媒体与娱乐缺乏申请许可规章制度及程序造成市场准入壁垒

对外企更严格地执行法律及针对外企的国家行动


国内企业


房地产法律法规的运用具有追溯性


国内企业

地方政府有自由裁量权来决定某项法律是否适用

标准制定委员会对外企参与标准制定过程的限制


标准制定委员会对外企参与标准制定过程的限制

行政部门和司法机关依赖非公开的法规与法律解释 / 并非所有法案都具

备公众意见征询程序，或征集公众意见的时间短于

国际惯例

缺乏司法独立 / 对外企更严格地执行法律及针对

外企的国家行动

相关部门的口头指示超越法律要求

以下哪些因素抑制了贵企业在华投资的能力 ?

关于以上四大抑制因素的详细内容，企业特别提到了以下方面：

第二个图表突出了我们会员就限制他们公司在华投资能力和意愿的做法这一问题表达的特别担忧。每个类别都更具体地揭

示了这些做法对特定行业的影响。例如，尽管金融和房地产服务业均选择“立法不透明，不明确或不一致”是最制约他们

投资的做法，但这种做法在金融服务行业中最为常见，其表现形式是行政当局或司法机关的行为以非公开的法规或法规解

释为依据，而房地产行业则报告称法律法规追溯是其更大的担忧。

Industry-Specific Investment Issues and

Recommendations

具体行业投资问题和建议

III



A mCham China member outlook on the bank-ing, capital markets, and e-payment indus-tries in China is relatively positive and invest-ment in these sectors continues to increase.

For 78 percent of respondents to the 2015 AmCham China Business Climate Survey from the banking, capital markets, and e-payment industries, China ranks as either the number one or a top-three priority to their company’s global invest-ment plans. Fifty percent of respondents report that China’s investment environment is improving and only 11 percent report no plans to increase their China investments in 2015. Over 60 percent of respondents show strong optimism in their two-year outlook on domestic growth. Such expres-sions of optimism were much stronger for members from the banking and e-commerce industries than from the other surveyed industries.

Despite this relatively positive outlook, challenges remain, including inconsistent/unclear laws and regulations, ris-ing labor costs, and shortages of qualified employees. Additionally, market access limitations were selected as the measure posing the greatest limiting impact on their com-pany’s ability and willingness to invest in China.

BANKING AND CAPITAL MARKETS

Overview

With slowing economic growth, China faces the challenge of rebalancing and managing financial stability. In 2014, defaults and other events in China’s shadow banking and corporate sectors revealed rising financial risks and sparked broad discussion regarding moral hazard. As reform efforts push towards use of market guidance in the allocation of financial resources, China will need to develop more sus-tainable and robust banking and capital markets.

BANKING, CAPITAL MARKETS, AND E-PAYMENT

How does China rank in your company’s near-term global investment plans?中国在贵企业近期全球投资计划中的排名

First priority首选

Top-three priority前三位

Not a high priority并非优先投资目的地

We only have operations in China仅有在华业务

One among many

destinations众多投资目的

地之一

67%

11%

0%

22%

The quality of China’s investment environment is:中国投资环境的变化

Improving改善

Staying the same保持不变

Deteriorating恶化

17%

33%

50%



中国美国商会成员认为中国的银行业、资本市场及

电子支付行业前景乐观，且这些行业的投资正在

持续增长。美国商会对 2015 年中国银行业、资

本市场和电子支付行业进行的《商务环境调查》显示，78%

的调查对象表示中国列在其公司全球投资计划之首或前三

名。50% 的调查对象表示中国的投资环境正在改善，仅有

11% 的调查对象 2015 年不打算增加对华投资。超过 60%

的调查对象对他们未来两年内在华经济增长的前景持高度乐

观态度。银行业和电子商务行业公司的乐观态度要大大高于

其它被调查行业。

尽管前景相对乐观，但问题仍然存在，包括法律法规相

互矛盾或表述不明确、人工成本不断上涨、缺乏合格雇员等。

此外，市场准入限制极大地限制了此类公司对华投资的能力

和意愿。

银行业和资本市场

概述

随着经济增速不断放缓，中国面临着重新平衡和维持金

融稳定的艰巨挑战。2014 年，中国影子银行和公司领域债

务违约等事件显示出不断上升的金融风险，并激起有关道德

风险的广泛讨论。改革的目的是充分发挥市场在金融资源配

置中的引导作用，中国需要发展更具可持续性和更为健康的

银行和资本市场。

中国人均国内生产总值约为美国的八分之一。为缩小上

述生产率差距，中国需要一个强劲的制度框架来支撑日益

加速的市场化改革和服务型经济。其中银行业和资本市场将

发挥重要作用。根据国际数据公司的数据，自 2009 年起，

中国的零售银行业收入平均年增速保持在 30%，并有望在

2020 年规模超过 4,220 亿美元（2.6 万亿人民币），成为

亚洲最大的零售银行市场。

中国银行业和资本市场的规制改革对推进政府经济改革

以及中资企业的全球扩张有重要作用。中国美国商会认为，

外资金融机构可提供全球最佳实践，推动市场的健康发展，

对经济改革有正面促进作用。

挑战

在中国，尽管监管部门采取了持续不断的积极措施并在

消除市场准入壁垒方面取得了一定成效，但若希望在华外资

银行能够与内资银行公平竞争，还有待进一步放松对外资银

行的管制。如果缺乏公平竞争机制，中国很难实现成为国际

金融中心的目标。

与发达程度更高的市场相比，中国对外资商业银行仍设

定了诸多限制，影响了外资商业银行在中国的发展：

How much do you estimate your company will increase investment in China operations for 2015? 2015 年贵企业预计扩大在华运营投资计划的规模

More than 50%50% 及以上

1-10%11-20%

21-50%

N/A

No investment expansion planned

无扩大投资计划

22%

22%

6%

17%

11%

22%




China’s GDP per capita output is approximately one-eighth that of the US. To narrow the productivity gap, China will require a robust institutional framework to support its increasingly market-oriented and service-driven econo-my. Banking and capital markets will play an important role in these efforts. According to the International Data Corporation, China’s retail banking revenues have grown 30 percent annually since 2009 and may exceed US $422 billion (RMB 2.6 trillion) by 2020, making it the largest retail bank-ing market in Asia.

Regulatory reform in China’s banking and capital markets is an important key to the government’s economic reforms and Chinese firms’ global expansion. AmCham China believes that foreign-invested financial entities can positively con-tribute to these reforms by sharing global best practices and promoting healthy market growth.

Challenges

Despite positive steps and incremental efforts by regulators to lift market entry barriers, further liberalization is needed for foreign banks to be able to compete on a level basis with domestic banks in the Chinese market. Absent such compe-tition on a level basis, it will be very difficult for China to achieve its objectives of becoming an international financial center.

Compared with more developed markets, numerous restric-tions continue to impede the development of foreign com-mercial banks, including:

• Ownership caps of 20 percent on foreign investors in domestic commercial banks;

• The inability of banks to simultaneously apply for multiple licenses for new products and services;

• An unequal playing field where different regulations are applied to domestic and foreign banks;

• A lack of transparency and consultation before new policies or regulations are released; and

• Restrictions on foreign banks participating in the bond market.

Although China has generally fulfilled its World Trade Organization commitments regarding securities sector pol-icy, the opening of its securities sector is far from sufficient to meet the needs of capital market development, as shown by the following:

At the end of 2013, the assets of China’s securities companies were approximately US $800 billion (RMB 5 trillion), significantly below those of banks – US $24 trillion (RMB 151 trillion) – and insurance companies – US $1.3 trillion (RMB 8.3 trillion).

Equities, including both direct investments and indi-rect exposures through mutual funds and retirement money, comprise less than 20 percent of financial holdings (six percent of total assets), significantly below the average of 60 percent in more developed economies.

The overall competitiveness, depth, and extensive-ness of China’s securities sector lags far behind those of other developed economies.

In the 2015 edition of the “Guiding Catalogue on Foreign Investment in Industry,” foreign investment in securities firms and investment fund management companies remains capped at 49 percent, life insurance companies at 50 percent, and joint venture commercial banks at 20 percent (25 percent in aggregate), while futures companies’ foreign investors are restricted to being minority shareholders. Many chal-lenges that remain in China’s securities market – including over-speculation in the A-share market, inefficient capital allocation, a lack of new product development and innova-tion, and the inability of mergers and acquisitions to move beyond the initial stages – are related to insufficient competi-tion and participation from international peers.

Credit Ratings

Credit ratings help to foster the development of capital mar-kets infrastructure and reduce the imbalance of information that often exists between buyers and sellers of bonds. The creation of an investor-led environment requires steady improvements in risk-based bond pricing, which are made possible through increased transparency. A sound capital market can help companies with a good credit history to continue to easily obtain access to funding at competitive rates. Foreign participation in the credit rating industry can help promote transparency and increase the quality of credit ratings and the financial system as the diversity of views fos-ter a healthy debate around credit risk.

To date there are few signs indicating that restrictions on for-eign participation in the credit rating industry will be eased in step with such developments. Currently, such restrictions appear in two major forms: an ownership cap of 49 per-cent on foreign investment in Chinese credit rating agencies (CRAs); and rules and practices, written or otherwise that, at times, put domestic CRAs with foreign sharehold-ers at a disadvantage. In addition, some of the conduct rules adopted or proposed by Chinese regulators appear to deviate significantly from international standards. This will make it difficult for foreign-affiliated CRAs to operate in China even if the ownership restrictions are eased.

AmCham China recommends that the relevant government agencies remove or ease ownership restrictions and that regulators adopt conduct rules consistent with international



• 外商投资国内商业银行所占股权不得超过 20%；

• 银行不能同时申请多项新产品和服务牌照；

• 内外资银行适用不同的监管法规，无法公平竞争；

• 新政策或法规出台之前缺乏透明度和意见征求程序；

• 外资银行参与债券市场面临诸多限制

尽管中国在总体上兑现了其 WTO 承诺，如证券行业政

策等，但中国证券业开放程度远不能满足资本市场发展的需

要，主要表现在：

截至 2013 年底，中国证券企业的资产总计约 8000 亿

美元（5 万亿人民币），远低于同期银行资产 - 24

万亿美元（151 万亿人民币）和保险公司资产 - 1.3

万亿美元（8.3 万亿人民币）。

股权投资，包括直接投资和通过共同基金和退休金计

划的间接投资，在金融资产所占比例还不足 20%（总

资产的6%），远低于发达经济体平均占比60%的水平。

中国证券行业的综合竞争力、深度和广度都远落后于

其他发达经济体。

2015 年新修订的《外商投资产业指导目录》中规定，

证券公司和投资基金管理公司中外资比例不得超过 49%，

寿险公司外资比例不得超过 50%，合资商业银行外资比例

不得超过 25%（合计），且外资不得控股期货公司。中国

的证券市场依然存在诸多挑战，包括 A 股市场过度投机、

资本分配效率低下、新产品开发和创新欠缺、并购交易难以

推进到下一阶段等，这些都与缺少国际市场主体的参与和竞

争有关。

信用评级

用评级有助于促进资本市场基础设施建设，减少债券买

方和卖方之间的信息不平衡。建立投资者主导环境，需要稳

步提高风险债券报价，而这只有在透明度提高的情况下才可

能实现。健全的资本市场有助于有良好信用记录的公司以有

竞争性的定价轻松实现融资。外方参与信用评级行业能够带

来多方视角，引发对信贷风险的合理讨论，对提高透明度、

改善信用评级和金融系统的质量有重要作用。

到目前为止尚无信号显示中国将逐步放松对外资参与信

用评级行业的限制。目前上述限制主要表现在两大方面：

外商投资在中国信用评级机构（CRA）的所有权比例不

得高于 49%；无论是书面还是其他形式的相关规定和实

践都表明，有外商股东的国内信用评级机构（CRA）时常

处于不利境地。另外，中国监管部门制定或建议的某些行为

守则也与国际标准显著不同。这样，即使取消了外资所有权

比例上限，外资投资的信用评级机构（CRA）在华运营也

会困难重重。

中国美国商会建议相关政府部门取消或放宽对所有权的

限制，建议监管部门采用符合国际标准的行为规范，以进一

步鼓励外资参与。外资参股的信用评级机构（CRA）参与

信用评级市场对中国资本市场大有益处，他们能够增强中国

债券市场的活力、提升市场主体的信心，主要反映在下述方

面：

提高国内信用评级机构（CRA）行业的质量，促进中

国市场信用评级行业的发展，包括：

• 通过知识传递等方式提高国内信用评级机构

（CRA）行业从业人员和管理层的业务水平；

• 扩大信用评级流程、技巧、技术和方法的范围；

• 通过大型全球母公司的参与促进规模经济的建立，

推动其中国子公司的发展。

增强中国发行人直接或间接进入国际资本市场的能

力，同时帮助全球投资者更好地了解中国发行人的市

场信息并促进沟通。从而：

• 减少国际贷方与国内借方之间的信息不对称，促

进资本跨境流动，从而推动经营完善的公司得到

发展；

• 帮助接受评级的发行人以更为经济的方式进入资

本市场；

• 使中国分析知识与全球技术更紧密地结合，从而

增进中国对全球信用风险的了解。



standards to further encourage foreign participation. The participation of foreign-affiliated CRAs would significant-ly benefit the Chinese capital market, as they can help re-enforce the rigor of and confidence in the Chinese debt mar-ket in the following ways:

Improving the quality of the domestic CRA industry and the quality of credit ratings in the Chinese market by:• Increasing the skills of both the labor force and

management of the domestic CRA industry through transfer of knowledge;

• Broadening the range of processes, techniques, technology, and methodological approaches; and

• Helping create economies-of-scale through great-er engagement by a large global parent company, stimulating the growth of its Chinese subsidiary.

Enhancing Chinese issuers’ access to international capital, either directly or indirectly, in turn improving market information and dialogue on Chinese issuers to a broader group of global investors, thereby:• Reducing information asymmetry between global

lenders and domestic borrowers and facilitating the flow of capital across borders, which tends to reward well-managed companies;

• Helping rated issuers enter the capital markets more economically; and

• Associating Chinese analytical expertise more closely with its global peer group thereby enhanc-ing the understanding of global credit risk within China.

Increasing Chinese capital market efficiency and dis-cipline to:• Help the financial disintermediation process,

thereby alleviating systemic concerns; and• Demonstrate that the domestic economy is open,

sending a strong signal of market integrity to global investors.

Shanghai FTZ and Financial Reforms

Currently, RMB is convertible through current accounts, though there are still numerous restrictions on the RMB through capital accounts, limiting options for institutions and investors in China. The China (Shanghai) Pilot Free Trade Zone (Shanghai FTZ) champions the “acceleration of innovation within the financial system” through, among other measures, implementation of RMB capital account convertibility, market interest rates, and cross-border RMB handling.

AmCham China recognizes the significant progress that has been made and supports liberalization of capital and curren-cy controls both in the Shanghai FTZ and more broadly across

the country. Recent commitments from the 2015 Strategic and Economic Dialogue to intervene in foreign-exchange markets only when the government finds disorderly market conditions are a positive step forward, though we find a gap still remains between the written reforms and their actual implementation.

Electronic Payment Services

Market Access

Driven by robust consumption, booming e-commerce, and industry innovation, electronic payment services (EPS) con-tinued to evolve rapidly in China in 2014. As China trans-forms into a consumption-led economy, it has developed the world’s second largest consumption market, with 2014 retail sales totaling US $3.8 trillion (RMB 24 trillion).

AmCham China has long advocated the opening of the bank-card clearing market, and we welcome the moves in that direction with the April 22, 2015 publication of the State Council’s “Decision to Implement Management of Market Access for Bank Card Clearing Institutions” with effect from June 1, 2015. The Decision ends China UnionPay’s monopoly in China’s bank-card clearing market. We appre-ciate the publication of the draft measures on July 3, 2015 for bank card clearing institutions by the People’s Bank of China (PBOC) for public comments, and hope that it will be issued soon. The opening of the market for bank-card clear-ing will benefit Chinese companies and consumers conduct-ing transactions not just in China, but increasingly around the world. While this represents a significant move towards opening, there still exist several qualification requirements that will make market entry difficult.

Bank Card Swiping Fees

In February 2013, the National Development and Reform Commission (NDRC) enacted the “Circular on Optimizing and Adjusting Bank Card Swiping Charges,” a new regu-lation which dramatically cut bank card swiping fees as a way to reduce the cost burden for merchants. While well intended, the regulation has resulted in several unintended consequences that impact the payment ecosystem, such as banks cutting cardholder services and reward programs and merchants fraudulently classifying themselves as lower-end merchants in order to reduce or eliminate fees. Additionally, the NDRC price regulation only applies to the F2F market, and not to the online market. Unregulated online 3PPPs, such as AliPay, are able to compete with the regulated F2F providers like China UnionPay at a much lower cost, thus disrupting the long-established F2F market.

As these problems largely stem from flawed fee controls and fee structures, there is a growing need for them to be lib-eralized. It is important that the price regulators view the fee not merely as a cost to merchants, but as an investment



提高中国资本市场效率和规范型

• 促进金融脱媒，降低系统风险；

• 展示国内经济的开放性，为全球投资者释放市场

完整性的强烈信号。

上海自贸区及金融改革

目前，通过活期账户可自由兑换人民币，但资本账户的

人民币兑换仍面临诸多限制，针对机构和在华投资者也仍有

很多限制项目。通过推进人民币资本项目可兑换、利率市场

化以及跨境人民币业务办理等举措，上海自贸区还成为“加

快金融体系内部创新”的排头兵。

中国美国商会支持在上海自贸区和中国其他地方放开资

本和外汇管制。在 2015 年中美战略与经济对话中，中方目

前承诺只有在市场混乱的情况下才干预外汇交易市场，这是

一个积极的进步，但是书面规定和实际执行之间还存在差距。

电子支付服务

市场准入

2014 年，在强劲的消费、蓬勃的电子商务和产业创新

的带动下，中国的电子支付服务（EPS）继续保持快速增长。

随着中国经济不断向消费驱动型转型，中国目前已经成为全

球第二大消费市场 , 其 2014 年的零售业销售总额已达 3.8

万亿美元 (24 万亿人民币 )。

中国美国商会一直倡议开放银行卡清算市场，我们欢迎

中国国务院于 2015 年 4 月 22 日印发的《关于实施银行卡清

算机构准入管理的决定》，这是迈向开放的一步。该决定于

2015 年 6 月 1 日起生效，结束了银联在中国银行卡清算市

场上的垄断。我们欣赏中国人民银行于 2015 年 7 月 3 日颁

布的关于银行卡清算机构的草案，并希望此草案的正式版能

早日发布。银行卡清算市场的开放将惠及中国公司和消费者，

还将推动中国乃至世界范围内的交易增长。虽然这是开放银

行卡清算市场的重要一步，但仍存在着一些资格要求使得市

场准入困难重重。

银行卡刷卡手续费

2013 年 2 月，国家发展和改革委员会（国家发改委）

出台了《关于优化和调整银行卡刷卡手续费的通知》，大幅

削减刷卡手续费、降低商户成本。尽管出发点很好，但却对

支付系统造成一些意想不到的负面影响，如银行减少对持卡

人的回馈计划及服务、商户为缴纳较低费率的手续费或不缴

纳手续费通过采取作假行为申报为低端商户。除此之外，国

家发改委的价格法规仅用于规范面对面市场，线上市场则不

受管制。因此，支付宝等网络第三方支付服务供应商能够以

较低的价格优势与受到监管的线下市场服务供应商（如中国

银联）竞争，扰乱了早已存在多年的线下市场。

上述问题的产生，主要是因为收费监管和收费结构尚不

成熟，因此越来越有必要放宽管制。价格监管部门不应仅仅

将手续费视作商户的成本，而应将其视作一项保持和改善支

付生态系统的不可或缺的投资，如区分不同的产品和兑付平

台，从而满足不同持卡人和商户的差异化需求。同样，放松

管控能够允许发卡方和收单方根据自己的价值定位和风险状

况自由地对其产品和兑付平台进行定价收费。如同全球其他

市场的实践一样，这种基于产品的收费结构将有效降低商户

代码错编风险。另外，定价自由化还有助于线上和线下服务

商在同一框架下公平竞争。

芯片标准

到 2020 年，中国出境游游客数量将达到 5 亿人次，入

境游客数量也将达到 1.5 亿人次。实现境内外银行卡的兼

容对于出国旅行的 PBOC3.0 持卡用户和来华旅游的 EMV(

欧陆卡、万事达卡和 VISA 卡 ) 持卡用户具有重要意义。中

国美国商会鼓励中国人民银行与国内外银行卡网络合作，在

将国内市场向国际网络开放时允许在国内交易时使用 EMV

标准芯片卡。同样与，也应解除技术或经济上的限制，促使

国际网络接受 PBOC3.0 标准卡。

建议

商业银行

• 在各监管总部的指导下，统一监管要求，提高

信息收集效率，减少或简化各类申报要求。

• 允许上海自贸区以外的上海辖区内的所有本地外

资法人银行能够与扩展后自贸区内（现已涵盖浦

东）的本地外资法人银行享有同等待遇。



essential to maintain and improve the payment ecosystem, including differentiated product and acceptance platforms that serve the different needs of cardholders and merchants. Accordingly, the fee control should be liberalized to allow issuers and acquirers to price their product and acceptance platforms commensurate with their value proposition and risk profiles. Such a product-based fee structure will effec-tively reduce the risks of merchant miscoding, as seen else-where in the world. Additionally, liberalized pricing will allow online and offline providers to compete on a level playing field.

Chip Standards

By 2020, China will have 500 million outbound travelers and 150 million inbound travelers. A compatible acceptance environment is important both for PBOC 3.0 cardholders traveling abroad and EMV (Europay, MasterCard, and Visa) card holders visiting China. AmCham China encourages the PBOC to work with both domestic and international bank card networks to allow EMV chip standards to be used for domestic transactions when the domestic market opens to international networks. It is equally important to make the PBOC 3.0 standard accessible to foreign networks without technical or economic restrictions.

RECOMMENDATIONS

Commercial Banking

• Better coordinate reporting requirements under the guidance of the respective regulators’ head offices; increase efficiency in data collecting and reduce or simplify the numerous reporting requirements.

• Allow all locally incorporated foreign-invested banks in Shanghai based outside of the Shanghai FTZ to enjoy the same treatment as those based in the expanded FTZ, which now includes Pudong.

Securities

• Fully liberalize foreign investment in the securi-ties sector as soon as possible, and do not include securities on the US-China BIT negative list.

Credit Ratings

• Remove or ease foreign ownership restrictions on foreign-affiliated CRAs.

• Adopt conduct rules consistent with interna-tional standards to further encourage foreign participation.

Financial Reforms

• Raise limits for RMB convertibility through capi-tal accounts within the Free Trade Zone and pro-vide greater transparency in the development of capital account regulations.

E-Payment

• Issue implementing regulations regarding the opening of the bank-card clearing market.

• Liberalize bank card swipe fees and optimize their pricing structure.

• Allow EMV standards to be used for domestic transactions when the market opens up and make the PBOC 3.0 chip standard accessible to interna-tional bank card clearing networks.



证券

• 尽快实现外商投资证券业的完全自由化，且不

将证券列入美中双边投资协定负面清单中。

信用评级

• 取消或放宽对外资信用评级机构（CRA）中外

资比例的限制。

• 采用符合国际标准的行为规范，进一步鼓励外资

参与。

金融改革

• 在自贸区放宽对资本帐户人民币兑换的限制，

提高资本账户管理的透明度。

电子支付

• 颁布关于开放银行卡清算市场的实施条例。

• 实行银行卡刷卡手续费自由化，优化定价结构。

• 在市场开放时允许在国内交易时使用EMV标准，

同时促使国际银行卡清算网络使用 PBOC3.0 芯

片标准。



Overview

T he Chinese government took several positive steps to improve regulation of the construction, engineering, and design (CED) market in 2014, including measures to address various market-

place issues and encourage new business models.

However, despite these encouraging steps, the relatively restrictive regulatory environment for foreign construction and engineering companies generally remains unchanged. Indeed, 57 percent of AmCham China CED sector members who responded to our 2015 Business Climate Survey cited market access limitations as a key factor limiting their ability and willingness to invest in China. Other major challenges for CED sector survey respondents include industry over-capacity, and the inability to participate in standard-setting

processes. More specifically, respondents indicate challenges stemming from verbal instructions from authorities that exceed what is required by law and local discretion in decid-ing whether to enforce laws.

CED sector survey respondents in general did not express plans for large investment expansion in China in 2015. Forty-three percent expressed no plans for increased invest-ments, while the remaining respondents indicated planned increases in investment of 20 percent or less. China also does not rank as a top priority for CED companies’ global invest-ment plans – a majority of respondents see China as either one among many or not a priority market, though 15 per-cent of respondents indicate that China is their sole base of operation.

As the construction market increasingly globalizes, AmCham China continues to believe that foreign-invested enterprises (FIEs) can enhance China’s construction mar-ket by introducing advanced technology and management skills to local operations. We therefore hope that the Chinese government will promote policies to encourage the develop-ment of FIEs in this market.

Challenges

Hiring and Residency Requirements for FIDEs

When the “Implementation Rules to the Administrative Regulations on Foreign-Invested Construction Engineering Design Enterprises” (Circular 18) relaxed certain residency requirements for foreign staff and allowed a greater percent-age of qualified Chinese nationals to work for FIEs in 2007, foreign-invested design enterprises (FIDEs) were able to more quickly expand operations and employ more Chinese professionals. However, as the relaxed regulations were introduced as temporary measures, many FIDEs remain reluctant to take advantage of these policies due to uncer-tainty as to how long they will remain in effect.

Such uncertainty complicates business planning and ham-pers hiring. AmCham China believes that Circular 18 should be permanently revised to eliminate the requirements that FIDE staff must be at least 25 percent foreign and that for-eign staff must reside in China for at least six months per year.

CONSTRUCTION, ENGINEERING, AND DESIGN



1-10%

11-20%

21-50%

N/A



43%

29%

14%

14%

0%



概述

2014 年，中国政府采取了多项积极措施，旨在改进建筑、

工程和设计 (CED) 市场监管，如解决市场问题和鼓励创新

业务模式等。

尽管这些举措鼓舞人心，但外资建筑和工程公司面临的

监管环境仍然相对限制。实际上，我们开展的 2015 年《商

务环境调查》所收回的反馈显示，57%的中国美国商会建筑、

工程和设计行业成员认为市场准入限制是关键的制约因素，

限制了他们在华投资的能力和意愿。其它一些重要问题包括

行业产能过剩、无法参与标准制定过程等。更具体的说，调

查对象指出，原本应由法律或地方法规决定是否执行的条例，

最终往往却由当局的口头指示取代。

参与建筑、工程和设计行业调查的从业公司普遍表示

2015 年没有大规模投资扩展计划。43% 的调查对象表示没

有增加投资的打算，其余调查对象则表示仅计划增加 20%

或更少的投资。中国未被建筑、工程和设计行业公司列为首

要的全球投资计划对象——大多数调查对象只把中国看作一

般的或根本不予优先考虑的市场，尽管其中 15% 表明中国

是他们唯一的业务基地。

随着建筑市场全球化程度日益提高，中国美国商会始终

相信，外商投资企业（外资企业）能够将先进技术和管理技

巧带入中国，从而促进中国建筑市场的发展。因此，我们希

望，中国政府能够推行鼓励政策，促进外资企业在这一市场

上的发展。

挑战

外资设计企业的雇用及居住限制

2007 年，《外商投资建设工程设计企业管理规定实施

细则》（18 号令）放宽了对外资企业外籍员工的居住限制，

同时允许其加大雇用合格的中国员工的比例。外资设计企业

(FIDEs) 因此得以加快扩张业务，雇用更多中国员工。

但是，这些宽限规定只是临时性的，由于不确定这些临

时措施的有效期限，很多外资设计企业不愿意利用这些政策。

这种不确定性使得经营计划变得更为复杂，并阻碍了人

才招聘。《外商投资建设工程设计企业管理规定实施细则》

（18 号令）规定，外资设计企业的从业人员至少应有 25%

来自于国外，且外籍员工每年至少应在中国居住 6 个月。中

国美国商会认为应当永久性地取消此规定。




Not a high priority

并非优先投资目的地

We only have operations

in China仅有在华业务

One among many destinations众多投资目的地之一

42%

15%

0%0%

28%

15%




Laws Regarding Capital Requirements and Staffing for FICEs

Foreign-invested construction enterprises (FICEs) entering China face unusually burdensome regulations regarding capital requirements and staffing for certain professional positions.

In order for foreign investors to undertake construction activities within China, the “Administrative Provisions for Foreign-Invested Construction Enterprises” (Decree 113) and its implementing regulations require foreign construc-tion companies to establish a local presence in China by creating either a wholly foreign-owned enterprise or a joint venture with a Chinese firm. They then must apply for the appropriate construction qualification in order to become a FICE.

Contrary to international practice, Chinese law does not allow standard financial instruments such as bank guaran-tees, surety bonds, or parent company guarantees to satisfy capital requirements for establishing a FICE. In addition, the staffing prerequisites to qualify as a FICE are particularly challenging as they stipulate that, in certain key personnel categories (e.g., engineers, architects), only locally qualified professionals can be counted towards the required mini-mum number while highly qualified expatriate profession-als on the payroll cannot.

AmCham China believes that internationally accepted stan-dard financial instruments should be allowed to satisfy capital requirements for establishing a FICE in China, and that the staffing requirements should be modified to include appropriately qualified foreign professionals.

Laws Regarding Capital Requirements and Staffing for FICEs

FICEs operating in China continue to face restrictive regula-tory burdens, with market exclusion ranking among the big-gest challenges. Wholly foreign-owned FICEs are restricted to undertaking foreign-funded projects or projects with for-eign investment equal to or greater than 50 percent, except for projects that cannot be undertaken by Chinese construc-tion enterprises because of technical difficulties. This regula-tion restricts FICEs to a limited segment of the construction market.

In 2013, such market exclusions were partially removed in the China (Shanghai) Pilot Free Trade Zone. AmCham China believes that the removal of such exclusions should be expanded nationwide, as they prevent FICEs from playing a substantive role in the Chinese market and from introducing advanced technology and expertise to the local market.

EPC Contracting Regulations

Construction projects with an engineering, procurement, and construction (EPC) contracting component are expand-ing around China, but the current qualification system does not effectively address such projects. Both the “Guiding Opinions Concerning Nurturing and Development of Project General Contractor and Engineering Project Management Enterprises” (Circular 30) and the “Explanation Letter Concerning Market Entry for Project General Contracting” (Circular 161) appear to allow EPC contracting, provided that the contractor holds an appropriate supervision, engi-neering design, or general construction qualification and contracts the construction activities to appropriately quali-fied subcontractors. However, there still are many local offi-cials who do not accept the filing of such EPC contracts if the contractor only holds a design qualification (DQ). This apparent discrepancy effectively prevents entities with only a DQ from undertaking EPC contracting, which is expressly permitted by Circular 30 and Circular 161.

RECOMMENDATIONS

• Apply more flexibility when reviewing design and construction contracts filed with local authorities.

• For companies that are not FICEs or FIDEs, clarify the requirements for qualifying as providers of project management services.

• Issue specific project management qualification standards that remove the ambiguity existing between current NDRC and MOHURD regimes.



关于外资建筑企业资本金和人员配备要求的法规

外资建筑企业 (FICEs) 进入中国需要面对极其繁琐的规

定，如资本金要求、部分专业岗位的人员配备等。

根据《外商投资建筑业企业管理规定》(113 号令 ) 及其

实施细则的要求，准备在华从事建筑业的外资投资者首先需

要在中国建立独资企业或与中方企业合作建立合资企业，之

后必须申请相关的建筑资质，方可成为外资建筑企业。

与国际惯例不同的是，中国法律不允许成立外资建筑企

业时使用银行担保、履约保证或母公司担保等标准金融工具

作为资本金。此外，对外资建筑企业人员也有限制：如在计

算某些关键职位（工程师、建筑师等）所需最低人数时，只

有本地具有相关执业资格的专业人员才能计算在内，具有相

应资质的外籍员工不能计算在内。

中国美国商会认为，中国应允许使用国际通用的标准金

融工具作为成立外资建筑企业的资本金，还应修改人员配备

要求，增加对具有相应资质的外籍专业人员的认可。

关于外资建筑企业资本金和人员配备要求的法规

在华经营的外资建筑企业仍然面临种种监管限制，其中

市场排斥是最大挑战之一。外商独资建筑企业只能参加外商

投资项目或外资比例达到或超过百分之五十的项目，中国建

筑企业因为技术困难而无法实施的项目除外。这一规定使得

外资建筑企业仅能参与有限的建筑市场。

2013 年，中国（上海）自由贸易试验区部分取消了这

种市场排斥。中国美国商会认为，应当在全国范围内取消这

种市场排斥，因为它们妨碍了外资建筑企业在中国市场发挥

实质性作用，也阻碍了本地市场引进先进技术和专业知识。

工程总承包法规

在中国，设计、采购、施工承包（工程总承包）等逐步

纳入到建筑项目中，但现有的资质认证系统还不能有效地满

足这类需求。《关于培育发展工程总承包和工程项目管理企

业的指导意见》（30 号令）以及《关于工程总承包市场准

入问题说明的函》（161 号令）似乎均允许工程总承包，只

要承包商具有适当的监理、工程设计或总承建资质，并将建

筑工作适当地分包给具有资质的分包商。然而，有许多地方

官员不接受只具有设计资质（DQ）的承包商提交的设计采

购施工承包申请。这实际上阻碍了只具有设计资质的主体参

与工程总承包，显然不符合 30 号令和 161号令的明文规定。

建议

• 地方当局应采取更为灵活的方式来审查备案设

计和建筑合同。

• 明确非外资建筑业企业和非外资设计公司从事项

目管理服务应达到的要求。

• 颁布专门的项目管理资质标准，清除目前国家发

改委与住建部法规之间的含糊不确定的地方。



Overview

T he Chinese government continued in 2014 to set the tone for the country’s reform and development. “Letting the market play a decisive role in resource allocation” – a theme set during the 2013 Third

Plenum – has become a guiding principle that is also being incorporated into the country’s healthcare reform policies.

Sixty-one percent of healthcare service companies who responded to AmCham China’s 2015 Business Climate Survey see China as a top-three priority for their company’s near-term global investment plans and nine percent have opera-tions only in China. As such, a majority of respondents express plans to increase investment in their China operations in 2015, with 36 percent planning an increase of 11-20 percent.

Despite the industry’s focus on the Chinese market, challeng-es to investment remain. Sixty-three percent of respondents selected market access limitation measures as having the great-est impact on their ability and willingness to invest in China, followed by Chinese government funding provided solely for domestic competitors and targeted enforcement for foreign firms. Additionally, 79% of respondents cite non-transparent,

unclear, or inconsistent rulemaking as a constraint on their abil-ity and willingness to invest in China. This problem often mani-fests itself in a lack of public consultation for proposed laws or a comment period that is shorter than international practice and administrative authorities or judicial organs relying on regula-tions or interpretations that are not public.

Administrative approvals that are unclear or unfair – such as administrative delays in meeting required deadlines that impede project progress, verbal instructions from authorities that exceed what is required by law, and regulatory ambigu-ity that allows regulators to benefit domestic companies or limit foreign-invested companies – also serve as investment barriers. Adding to the challenges, 67 percent of respondents cite that licensing and government approval procedures in the healthcare service sector have become more difficult over the past couple of years. These challenges in part explain why nearly half of healthcare service sector respondents stated that they feel less welcome in China than before.

Our members nevertheless also see potential for growth in the domestic market as a bright spot in the industry. A more open, fair, and transparent healthcare market will benefit all market players, improving the affordability and accessibility of quality and innovative medical products and services.

The Chinese government made significant progress in 2014 to address challenges and promote healthcare reform. AmCham China welcomes the opportunity to work collab-oratively with the Chinese government to facilitate these reforms and bring wellness to the Chinese people.

Challenges

Tax Rates for Private Hospitals

While the Chinese government has attempted to improve the tax environment, private hospitals are still responsible for a unified corporate tax rate of 25 percent. This is equal to the highest of all tax rates for businesses and organizations in China. It is at odds with the government’s intent to attract private capital – both foreign and domestic – to expand healthcare coverage and promote healthcare reform.

Therefore, we recommend that the Chinese government adjust its tax policies in two ways to stimulate the growth of private hos-pitals. First, reduce the corporate tax rate for private hospitals to 15 percent – the discounted tax rate for qualified enterprises in encouraged industries. Second, allow chain hospitals to consoli-date tax reporting for mature and new facilities, at least for facilities

HEALTHCARE SERVICES



1-10%

11-20%

21-50%N/A



14%

18%

14%

9%

9%

36%



概述

2014 年，中国政府继续为国家改革和发展定调。作为 2013

年三中全会确立的一项主题，“使市场在资源配置中起决定

性的作用”已经成为一项指导原则和中国医疗改革政策的一

部分。

在中国美国商会2015年《商业环境调查》收到的反馈中，

61% 的医疗服务公司表示中国是他们公司近期全球投资计

划的前三名首选对象之一，9% 的公司只在中国开展业务。

大多数接受调查的公司表示有计划在 2015 年增加在中国的

业务投资，36% 的公司计划增加 11-20% 的投资。

虽然这些公司把目标放在了中国市场，但投资仍然面临

一些挑战。63% 的调查对象认为市场准入限制措施是影响

其在华投资能力和意愿的最主要因素，其次是中国政府仅将

资金投入到国内机构，对国外公司则强调执行。此外，79%

的调查对象认为政策法规不透明、不明确，以及前后矛盾的

规章制定限制了他们的投资能力和意愿。这具体表现在草案

缺乏公众咨询，或意见征询期短于国际惯例，行政机关或司

法机关执法或司法解释不公开。

不明确或不公正的行政审批，例如超期的行政滞后影响

项目进程、当局的口头指示凌驾于法律之上、法规的歧义性

导致国内公司有机可乘、法规对国外公司投资的限制等等，

也都是严重的投资壁垒。此外，67% 的调查对象反映，近

两年医疗行业的许可办理和政府审批程序变得越来越困难。

这些问题也解释了为什么接近半数的医疗服务行业调查对象

称他们感到在中国比原来要更不受欢迎。

然而，我们的成员仍然看到了国内市场此行业的亮点，

这些亮点意味着潜在的市场增长。更加开放、公平和透明的

医疗市场能够让市场参与各方受益，有助于提高公众获得和

负担高品质创新性医疗产品及服务的能力。

2014 年，中国政府在应对挑战和推进医疗改革方面取

得了重要进展。中国美国商会认为这是与中国政府合作的良

好机会，愿意共同推动改革，为中国人民的健康服务。

挑战

私立医疗机构纳税税率

中国政府已经着手改善税收环境，但是，私立医疗机构

仍需缴纳 25% 的企业所得税税率，这是所有在华企业和组

织所缴纳的最高比例的税额。这与政府吸引国内外私营资本、

扩大医疗覆盖范围和推动医疗改革的初衷是相悖的。

因此，我们建议中国政府通过两种方式调整税收政策，

刺激私立医疗机构的增长。第一，将私立医疗机构的企业所

医疗服务






One among many destinations众多投资目的地之一

61%

9%

17%

4%

9%



located in the same city. These two proposed amendments to cor-porate tax regulations will have an immediate and marked impact on new investment in the healthcare services sector.

Pricing of Pharmaceuticals

Issued on March 25, 2014 by the NDRC, Notice 503 stated the government’s continued commitment to allowing pri-vate for-profit hospitals to set their own prices for healthcare services. However, with respect to pharmaceuticals on the National Essential Drug List, these hospitals remain restrict-ed to government-mandated retail prices.

For private hospitals that subscribe to international quality standards, the mandated prices do not cover their pharma-cies’ operating costs. Although some local administrations have allowed hospitals to add a pharmacy service charge to cover these expenses, a split pharmacy and service charge invoice may not be acceptable to all insurance providers. The over-regulation of pricing also leads to shortages in pharma-ceutical stock which negatively impact the ability of private hospitals to deliver consistent care.

In May 2015, the NDRC, together with six other agencies, issued a “Circular Concerning Opinions on Advancing Drug Pricing Reform.” The Circular initiates significant reforms of China’s drug pricing system, removing many previous constraints on drug prices and allowing them to be set by the market. This shift from government-set drug prices may have a long-term impact on pharmaceutical companies oper-ating in China. However, updates to other relevant policies, such as hospital tendering and reimbursement, are needed before the Circular’s impact on the healthcare industry will be clear. One continuing question of our members is how the new pricing system will evolve to address quality issues.

AmCham China strongly recommends releasing private for-profit hospitals from pricing and procurement constraints in order to permit them to maintain high standards of care and service. We hope that any related reforms will help to address the prescription fee issue and lead to more rational prescription behavior in both private and public hospitals.

Reimbursement of Government Insurance (Yibao) at Private Hospitals

For nearly half a decade, the Chinese government has active-ly encouraged foreign investment in healthcare services and the growth of private hospitals. This is intended to diversify the healthcare choices available to different segments of soci-ety and ease the pressure on the public system. However, Notice 58, published by the State Council in 2010, also stipu-lates that private hospitals are only eligible for government insurance reimbursement (医保, yibao) insofar as they fully conform to the price list adopted by public hospitals. This limits the reach and affordability of private hospitals.

AmCham China recommends that the Ministry of Human

Resources and Social Security allow private, for-profit hos-pitals to receive yibao reimbursement for healthcare services at the prevailing yibao reimbursement rates, and allow them to set prices on top of yibao at their discretion. The difference between the yibao and hospital price is one that commercial insurers can fill, encouraging the growth of the private health insurance market in line with the NDRC’s stated goals. In addition, we encourage the State Administration of Taxation to designate additional commercial health insurance pur-chased by employers as a non-taxable benefit. Together this will increase the affordability of and competition among healthcare service providers, stimulate purchase of private health insurance, and ease pressure on the public system.

Physician Licenses for Multiple Practice Sites

On November 5, 2014, the National Health and Family Planning Commission (NHFPC) issued Notice 86, “Regarding the Advancement and Standardization of Multi-Site Physician Employment,” further opening the door for physicians to practice at more than one site. This follows the 2011 policy which first permitted physicians to maintain two valid places of practice. However, the new legislation con-tinues to require that physicians receive the approval of their primary employer before engaging with a second employ-er, significantly limiting uptake. Public hospital presidents have been reluctant to grant such approval, fearing a loss of service by their medical staff.

Notice 86 also suggests the possibility of piloting a new sys-tem – whereby physicians would only need to inform, rather than seek approval from, their primary employer – in locations where “conditions are appropriate.” AmCham China recom-mends further liberalization, by which physicians can apply directly to the health bureau for second site licenses, provided that they agree to fulfill the obligatory 40-hour work week at their primary employer. This would encourage the distribution of medical talent across various levels of the healthcare system, both public and private. Enabling licenses to be held in more than one jurisdiction, moreover, would promote the geographi-cal distribution of medical talent, the standardization of prac-tice, and facilitate the development of healthcare chains.

RECOMMENDATIONS

• Reduce taxes for private hospitals and allow chain hospitals to consolidate tax reporting of mature and new facilities, at least for facilities in the same city.

• Release private for-profit hospitals from pricing and procurement constraints in order to permit them to maintain high standards of care and service.

• Allow private, for-profit hospitals to receive yibao reimbursement for healthcare services at the pre-vailing yibao reimbursement rates, and allow them to set prices on top of yibao at their discretion.



得税税率降至 15%，与“鼓励类”行业的合格企业所享受

的优惠税率平相当。第二，允许连锁医疗机构合并现有成熟

医疗点和新设医疗点的税收报表，至少允许合并位于同一城

市的医疗点。对税收法规的这两条修改建议会对医疗服务行

业的新增投资产生直接且显著的影响。

药品定价

根据 2014 年 3 月 25 日中国国家发展和改革委员会发布

的第 503 号通知，政府将继续允许私立营利性医疗机构自行

制定医疗服务价格。但是，对于列入《国家基本药物目录》

的药品，这些医疗机构应继续执行政府确定的零售价格。

对于遵守国际质量标准的私立医疗机构来说，政府定价

无法涵盖其药房经营成本。虽然一些地方已经允许医疗机构

额外收取药事服务费，用于弥补这些费用开支，但是，并不

是所有的保险公司都接受单独开立的药事服务费发票。价格

过度监管也导致药品库存出现短缺，不利于私立医疗机构提

供质量统一的医疗服务。

2015 年 5 月，中国国家发改委与其它六大部门一起，

发布了《关于印发推进药品价格改革意见的通知》，此通知

引发了中国药品定价系统的重要变革。通知解除了先前对药

品价格的很多限制措施，允许药品由市场定价。此次对政府

定价权的变革对那些在中国开展业务的制药公司产生了深远

影响。然而，医院竞标、报销制度等方面，也应在上述通知

对整个医疗服务行业造成影响之前进行改革。我们的会员对

新定价系统如何解决药品质量问题一直抱有疑问。

中国美国商会强烈建议取消私立营利性医疗机构的价格

和采购限制，以便他们能够维持高标准的医疗和服务。我们

希望，任何相关改革都将有助于解决处方费的问题，使私立

和公立医疗机构的处方行为变得更加合理。

私立医疗机构的医保报销制度

在过去近五年时间里，为了向社会各个阶层提供多样化

的医疗选择，减轻公立医疗系统的压力，中国政府积极鼓励

外国资本投资医疗卫生和私立医疗机构。但是，根据 2010

年国务院发布的第 58 号通知，私立医疗机构只有完全遵循

公立医疗机构实行的价目表才有资格取得政府医保报销。这

制约了私立医疗机构的经营范围和支付能力。

中国美国商会建议人力资源和社会保障部允许私立营利

性医疗机构按照适用的医保报销比例享受医疗服务医保报

销，允许它们在医保标准的基础上自行定价。医保和医疗机

构定价之间的差额由商业保险公司承担，鼓励按照中国国家

发展和改革委员会确定的目标发展个人健康保险市场。此外，

我们支持国家税务总局对企业为员工购买的附加商业健康保

险提供免税待遇。总而言之，这将提高医疗服务的承受能力，

推动医疗卫生企业之间的竞争，鼓励购买个人医疗保险，减

轻公立医疗系统的压力。

医师多点执业许可

2014年 11月 5日，国家卫生和计划生育委员会发布《关

于推进和规范医师多点执业的若干意见》的通知（第 86 号

通知），进一步放开医师多点执业的大门。在此之前，2011年，

中国出台政策，首次允许医师可在两个地点提供医疗服务。

但是，新法规仍然要求拟多点执业的医师需获得第一执业地

点医疗机构的同意，这在很大程度上限制了多点执业的医师

数量。公立医疗机构的院长们因为担心医疗人员的服务受到

影响 , 不愿意批准这样的申请。

第 86 号通知规定，在“有条件的地方”展开试点，医

师向第一执业地点医疗机构履行知情报备手续后即可开展多

点执业，无需征得同意。中国美国商会建议进一步放开限制，

允许医师直接向卫生局申请多点执业许可，允许他们在第一

执业地点医疗机构履行每周 40 小时工作义务的情况下开展

多点执业。这将鼓励医疗人才在各级公私医疗卫生体系中均

衡分布。而且，持有多地的许可将会推动医疗人才的地域分

布、规范执业，促进医疗卫生机构的发展。

建议

• 降低私立医疗机构的纳税税率，允许连锁医疗

机构合并现有成熟医疗点和新设医疗点的税收

报表，至少允许位于同一城市的医疗点进行合

并。

• 取消私立营利性医疗机构的价格和采购限制，以

便他们能够维持高标准的医疗和服务。

• 允许私立营利性医疗机构按照适用的医保报销比

例享受医疗服务医保报销，允许它们在医保标准

的基础上自行设置价格。



Overview

T he importance of the Information and Communications Technology (ICT) sector to all aspects of China’s development has been clear-ly articulated in its 12th Five-Year Plan, nation-

al “informatization” programs, Strategic and Emerging Industries (SEIs) objectives, and in the Third Plenum Decision released in November 2013.

However, despite the positive role this industry has to play, a number of policy challenges still need to be addressed to foster the healthy development of China’s ICT sector. The ICT industry serves global networks and provides products and services across borders, interconnected by the Internet and produced via complex supply chains that span the globe. Consequently, the ICT sector requires close interna-tional policy coordination and consensus-building between governments around the world.

Recent media revelations of information security breaches have dampened cross-border investment and cooperation opportunities in the ICT sector, leading some governments to discriminate against foreign technology in an attempt to protect critical national information infrastructure. For exam-ple, foreign products are described and appear to be accepted as untrustworthy without any presentation of evidence that local products are more secure. These restrictions are against the interests of every country, including the US and China, and their negative impact is reflected in the responses of our ICT members to the 2015 Business Climate Survey.

Thirty-six percent of ICT sector survey respondents state no plans to increase investment in their China operations in 2015. While China is described as a top-three priority for 43 percent of ICT respondent’s near-term global investment plans, 46 percent describe China as either not a high priority or one among many destinations.

Thirty-six percent of respondents also sense a deterioration in the quality of China’s investment environment, more than double the percentage who expressed this sentiment in 2014.

INFORMATION AND COMMUNICATIONS TECHNOLOGY



1-10%

11-20%

21-50%

N/A



36%

21%

18%18%

5%

2%

Do you feel foreign businesses are more or less welcome in China than before?外资企业在中国的受欢迎程度

No change受欢迎程度不变

59%

32%

9%

Less welcome than before

受欢迎程度下降

More welcome than before

受欢迎程度增加



概述

第十二个五年计划、国家信息化项目、战略性新

兴产业发展规划、以及 2013 年 11 月三中全会

的决定，都明确阐明了信息通信技术对中国发

展各层面的重要性。

尽管该行业发挥了积极的作用，中国信息通信技术行业

的健康发展，还必须解决很多政策挑战。信息通信技术行业

通过遍布全球的综合供应链开展生产，服务全球网络，提供

跨境产品和服务。因此，信息通信技术行业需要各国政府密

切协调国际政策和建立共识。

近来媒体披露的信息安全漏洞事件抑制了信息通信技术

行业的跨境投资与合作机会，导致一些国家试图通过排斥外

国技术的方式保护国家关键的信息基础设施。例如，毫无根

据地诬蔑国外产品不可靠，鼓吹国内产品更安全。这些制约

因素既损害了美国也损害了中国的利益，这些因素的负面影

响从参与 2015 年《商业环境调查》的信息通信技术业成员

的反馈中可以看出来。

36% 的信息通信技术行业的调查对象称 2015 年不打算

在中国扩大投资，43% 的调查对象在近期投资计划中把中

国列在前三，46% 的调查对象不把中国列为最优先考虑对

象或者仅将中国列为一般考虑对象。

36% 的调查对象也感受到了中国投资环境的恶化，而

2014 年只有不到一半的人有此感觉。同样地，59% 的调查

对象认为国外的信息通信技术企业在中国不如以前受欢迎。

而市场准入限制加深了这些坏印象，超过一半的调查对

象认为准入限制影响了其在华投资的能力和意愿。还有接近

三分之一的调查对象认为针对国外公司的选择性执法也是一

大限制因素，四分之一的调查对象认为中国政府只把资金投

入国内企业也造成了限制，详见下文详细讨论。

挑战

电信和互联网服务的市场准入

由于投资限制、安全管制和一系列保护主义措施，外国

企业和外商投资企业在参与中国电信和互联网行业竞争时面

临着严峻挑战。

更为麻烦的是，中国正在将这一监管限制机制从传统电

信服务延伸到所有使用互联网连接的 IT 行业，包括：

• 电信增值服务的持股上限和限制条件，包括云计算、

软硬件的进口和采购限制，信息安全限制；以及

• 与国际标准存在差异的技术标准，互联网内容限制，

隐私和跨境数据流限制。

信息通信技术


100%

80%

60%

40%

20%

02012

45%

35%

20%

2013

34%

38%

28%

2014

36%

47%

17%

2015

23%

41%

36%

Deteriorating恶化


Improving改善



Similarly, 59 percent feel that foreign ICT businesses are less welcome in China than before.

These perceptions are fueled in part by market access limita-tions, which more than half of respondents cite as limiting their company’s ability and willingness to invest in China. Approximately one-third of respondents also cite targeted enforcement of foreign firms and nearly one-fourth note Chinese government funding provided solely for domestic competitors as limiting measures. These issues are discussed in further detail below.

Challenges

Market Access for Telecom and Internet Services

Foreign and foreign-invested companies face severe chal-lenges competing in China’s telecommunications and Internet sectors due to investment restrictions, security con-trols, and a range of protectionist measures.

More troubling, China is extending this restrictive regula-tory framework beyond traditional telecommunications services into any IT sector that utilizes Internet connectivity, including:

• Equity caps and restrictions on value-added telecom-munication services (VATS), including cloud comput-ing, information security, and import and procure-ment of hardware and software; and

• Technical standards that often diverge from global standards, Internet content restrictions, and privacy and cross-border data flow restrictions.

Foreign investment in almost all telecommunications servic-es is currently capped at 49 percent for basic services and 50 percent for VATS. Moreover, high minimum capital require-ments and opaque approval standards have effectively pre-vented foreign investment in China’s telecommunications sector.

Initial reforms adopted in the Shanghai FTZ have the poten-tial to further open China’s telecommunications industry to foreign investment. AmCham China urges additional steps to open the telecommunications industry to foreign invest-ment in the Shanghai FTZ, and welcomes the creation of additional zones open to foreign investment in the telecom-munications industry and the extension of such opening nationwide.

Cloud Computing

Cloud computing, despite being identified as an area of strategic development in China, remains largely off limits

to foreign ICT companies, due to a number of policy chal-lenges, including equity caps, investment restrictions, and market entry barriers.

China has made numerous bilateral and multilateral com-mitments to provide foreign enterprises with fair and equi-table participation in the development of SEIs. This includes cloud computing and the development of SEI policies in a manner compliant with WTO obligations.

AmCham China recommends that the Chinese government fulfill these commitments in an expeditious manner, remov-ing investment and other restrictions that prevent foreign investment in cloud computing in China. Furthermore, we believe that China’s deployment of cloud computing tech-nologies will be facilitated by adopting global standards and policies that reflect the international and borderless nature of this emerging industry. We also recommend that the Chinese government provide greater clarity and participation regard-ing standards and regulations related to cloud computing.

National Security Law

On July 1, 2015, the National People’s Congress (NPC) Standing Committee enacted the new National Security Law. Acknowledging the significant role that ICT plays across sectors, this Law emphasizes “secure and controlla-ble” systems and data security in critical infrastructure and key areas, as well as prevention of online dissemination of illegal content. Indigenous innovation capacity building is also emphasized as a tool to help achieve the objective of ensuring national security. Furthermore, a national security review regime will be set up for foreign investment and oth-er critical areas, including network information technologies and services.

AmCham China recommends that the Chinese government provide more clarity on the planned implementation of the National Security Law, particularly regarding its impact on the business operations and development of foreign ICT companies in China.

RECOMMENDATIONS

• Remove licensing and approval requirements for provision of telecom value-added services and cloud computing technologies by foreign compa-nies in the China market, as well as policies that require partnership with domestic companies as a condition for market access.

• Refrain from the institution of information security policies that create market access barriers. We ask that this regime be open for public comment, from both foreign and domestic ICT companies, before taking effect.



目前，外商投资电信服务的比例上限为：基础服务

49%，增值服务 50%。而且，较高的最低出资要求和模糊

的审批标准在很大程度上阻碍了外商投资中国的电信行业。

中国（上海）自由贸易试验区的初步改革举措有可能进

一步向外国投资开放中国的电信行业。中国美国商会促请中

国采取更多措施，在该自贸区向外商投资开放电信行业，并

欢迎设立其他自贸区向外商投资开放电信行业。

云计算

在中国，云计算虽然被确定为战略发展行业，但是受到

持股上限、投资限制、市场准入壁垒等众多政策制约，外国

信息通信技术企业大都无法进入中国市场。

中国在很多双边和多边协议中承诺允许外国企业公平公

正地参与战略性新兴产业的发展，其中就包括云计算以及其

他符合世贸组织框架义务的战略性新兴产业。

中国美国商会建议中国政府加快履行这些承诺，取消外

商投资在华投资云计算业务时所面临的投资等限制。而且我

们相信，若是采用这一新兴行业的全球标准和政策，并符合

云计算的无边界特性，将有助于推动中国云计算技术的部署

和推广。我们还建议中国政府提升制定相关标准和规定的透

明度及参与度。

《国家安全法》

2015 年 7 月 1 日，全国人民代表大会常务委员会通过

了新的国家安全法。新法申明了信息通信技术在各行业所起

的重要作用，强调了关键基础设施和重要区域的“安全可控”

系统和资料安全性，还提到应阻止非法内容的网络传播。新

法还强调，自主创新能力建设是确保国家安全这一目标的重

要工具。此外，将在外商投资和其它关键领域建立国家安全

审查制度，包括网络信息技术和服务领域。

中国美国商会建议中国政府进一步阐释《国家安全法》

的施行办法及其意义，特别是对企业运营及国外信息通信技

术在华发展的影响。

建议

• 取消外国企业需申请许可并获得审批方可在中

国市场开展电信增值服务和云计算技术业务的

要求、取消外资企业必须与国内企业合伙才能

进入中国市场等规定。

• 避免制定造成贸易壁垒的信息安全政策。我们要

求在这一制度生效实施之前，向国内外信息通信

技术企业公开征求意见。



Overview

T he State Council in August 2014 released the “Several Opinions of the State Council on Accelerating the Development of the Modern Insurance Service Industry in the People’s

Republic of China” (State Council Opinions) which recog-nized that “accelerating the development of the modern insurance service industry is an important part of improving the modern financial system” in China and endorses a mar-ket orientation featuring fair competition and the opening of China’s insurance market. AmCham China views this as an important step toward a more developed and fairer insur-ance market, which can enhance the safety and security of China’s people and property and economic stability.

Foreign investment in the insurance industry unfortunately continues to be hampered by restrictions on foreign invest-ment and discriminatory licensing procedures. AmCham China hopes to see further reduction of restrictions on

foreign investment and more rapid and fairer insurance licensing procedures. Increased participation by experi-enced international insurance firms in China’s market will further the goals noted in the State Council Opinions and help China to develop a modern insurance industry for the benefit of its people and economy.

Though the insurance industry continues to face vari-ous market access challenges, 67 percent of insurance-industry respondents to AmCham China’s 2015 Business Climate Survey state that China’s investment environment is improving. That said, 45 percent of insurance company respondents report no plans to increase investment in their China operations in 2015. Sixty-seven percent of respon-dents say that market access limitations limit their compa-ny’s ability and willingness to invest in China. Additional challenges that limit investment include unequal approval processes for investments and non-transparent, unclear, or inconsistent rulemaking. Regarding business challenges, the insurance industry remains challenged by shortages of qualified employees, rising labor costs, and difficulty obtaining required licenses. Despite these challenges, 78 percent of respondents rank China as either their first pri-ority or a top-three priority in their company’s near-term global investment plans.

Challenges

US insurance companies, many of which have decades of experience serving consumers around the world, want to deliver their products to Chinese consumers. But in order to do so, foreign-invested insurance companies need both to acquire a license to operate in China and be accorded nation-al treatment in order to compete on a level playing field with their domestically invested counterparts. Unfortunately, foreign-invested insurers continue to face delays in the issu-ance of licenses and new product approvals, as well as arti-ficial ownership caps and other barriers. AmCham China continues to favor removal of these barriers in all of the Pilot FTZs as well as nationwide.

INSURANCE


Improving改善


33%

0%

67%

Deteriorating恶化



概述

2014 年 8 月，国务院颁布了《关于加快发展现代保险服务

业的若干意见》（以下简称《意见》）。《意见》指出，在

中国，“加快发展现代保险服务业对完善现代金融体系具有

重要意义”，确定坚持市场主导的基本原则，营造公平竞争

的市场环境，提升中国保险市场的开放水平。中国美国商会

认为，该《意见》出台意味着中国向建立更加完善和公平的

保险市场迈出了重要一步，有利于提高中国人民的生命和财

产安全与保障，促进中国经济稳定发展。

然而，国外资本在保险业这方面的投资一直遭受着种种

限制，并在办理许可手续方面受到差别对待。中国美国商会

期待中国政府相关部门尽快制定实施条例和细则，也希望看

到有关投资和开放具备高度竞争力的现代化保险市场的切

实举措，特别是降低外资准入门槛，简化保险许可手续，提

高审批的公平程度。随着越来越多经验丰富的外资保险公司

参与中国保险市场的竞争，《意见》中提出的发展目标将得

到进一步推进，从而促进中国现代保险业的发展，服务中国

经济腾飞，为中国人民创造福祉。

虽然保险业一直面临着各种市场准入问题，但仍有

67% 的保险业调查对象在中国美国商会 2015 年《商业环境

调查》反馈时表示中国的投资环境正在改善。尽管如此，

45% 接受调查的保险公司表示 2015 年无增加对华投资的计

划。67% 的调查对象称市场准入限制制约了其在华投资的

保险



1-10%

11-20%

21-50%

N/A



45%11%

11%

22%

11%

0%






One among many


地之一

67%

11%0%0%

11%

11%



RECOMMENDATIONS

Sales and Service Channels

• Put into practice the review and approval of branch applications by foreign-invested insurers in the same manner and at the same pace as appli-cations by domestically invested insurers.

• Expressly remove all limits on the number of insur-ance companies whose products may be sold by commercial bank branches.

• Further open the Internet insurance channel by allowing more types of insurance products to be sold online nationwide.

• Allow insurers to sell long-term foreign curren-cy denominated life insurance products to meet Chinese consumers’ growing demands for foreign-currency assets.

Licenses

• Increase competition in pension and health insur-ance by licensing foreign-invested applicants.

• Set reasonable risk weights for international rein-surers to expand reinsurance capacity and reduce domestic risk concentration.

Ownership

• Lift the 50 percent cap on foreign ownership in life insurance.

• Remove the two-year seasoning requirement to establish a representative office to attract additional foreign insurers as has been done in the banking industry.

• Allow insurance asset management companies to be established by a single founding shareholder in accordance with the Company Law.

Tax Incentives

• Expand tax incentives for tax-deferred annuities for tax-deferred pension and health products.

Structural

• Establish a separate department in CIRC to regu-late health insurance at the same level as the life insurance and property insurance departments.



能力和意愿。其它影响投资的问题包括不平等的投资审批过

程以及不透明、不明确且前后矛盾的规章制定等。从整个行

业来说，较大的问题包括缺乏合格的雇员、人工成本上升、

许可证书办理困难等。尽管有诸多问题，仍有 78% 的受调

查公司在近期的全球投资计划中将中国列为首位或前三。

挑战

许多美国保险公司拥有几十年的保险行业经营管理经

验，在世界各地拥有众多客户，他们希望将自己的产品提供

给中国消费者。但是，为了在中国开展保险业务，外资保险

公司需要获得在华经营许可，以及平等的国民待遇，以便与

中资保险公司公平竞争。遗憾的是，外资保险公司仍面临着

保险许可发放和新产品审批迟缓、外资股东持股比例上限及

其他障碍。中国美国商会将继续支持中国政府在所有自由贸

易试验区和全国范围内清除这些障碍。

建议

销售和服务渠道

• 外资保险公司申请设立分支机构时，在审批手

续和审批进度上应享受和内资保险公司同等的

待遇。

• 取消对可通过商业银行渠道销售银保产品的保险

公司数量的限制。

• 取消保险公司通过互联网销售保险产品的跨区域

经营限制。

• 允许保险公司以人寿保险产品的名义销售长期外

币，以满足中国消费者对于外币资产日益增长的

需求。

许可

• 向外资保险公司发放经营许可，提升养老保险

和健康保险的市场竞争力。

• 为国际再保险公司设置合理的风险加权数，以扩

大再保险能力，减少国内的风险集中。

所有权

• 取消寿险公司外资股东持股比例不得超过 50%

的上限规定。

• 废除对成立代表机构的两年期要求，吸引更多的

国外保险公司，如同银行业所做的那样。

• 依照《公司法》规定，允许单一发起人股东设立

保险资产管理公司。

税收优惠

• 加大对递延型养老保险的递延型年金以及健康

产品的税收优惠力度。

监管结构

• 在保监会内部单独设立一个部门，按照寿险和

财产险的监管标准对健康险业务进行监管。



Overview

T he legal services industry continues to face mar-ket access restrictions in China. As such, nearly half of the legal service industry respondents to our 2015 Business Climate Survey view the quality

of China’s investment environment as unchanged. That said, over half also expressed plans to increase investment in their China operations in 2015 by 1-20 percent.

Three practices were highlighted as largely limiting legal service survey respondents’ ability and willingness to invest in China:

• Rulemaking that is not transparent, unclear, or incon-sistent, including the market entry barrier created by a lack of licensing rules and procedures and the reli-ance by administrative authorities or judicial organs on regulations or interpretations that are not made public;

• Administrative approvals that are unclear or unfair, including administrative delays in meeting required

deadlines that impede project progress and regulato-ry ambiguity that allows regulators to benefit domes-tic companies or limit foreign-invested companies; and

• Judicial processes and enforcement that are unequal, lack transparency, and lack effective recourse, limited access for foreign attorneys to legal hearings and other proceedings, legal measures or court deci-sions that are not made public, and a lack of judicial independence.

Challenges

Non-PRC law firms face a wide range of market access con-straints in mainland China, which were cited by 72 percent of our survey respondents as the top measure limiting their ability and willingness to invest in China. These restric-tions include: an unnecessarily difficult, delayed, and unpredictable registration process for the establishment of offices; the inability to employ PRC-qualified lawyers so that they can provide comprehensive legal services to their clients; prohibitions against participation in important meetings at government departments involving their clients; and discriminatory taxation. These constraints impose a significant, measurable impact on foreign firms’ ability to operate in China.

The Chinese government’s continued restrictions in this sector significantly limit the options available to mainland Chinese and foreign companies seeking sophisticated legal advice and counsel and deprive PRC-qualified lawyers of the opportunity to work for, receive world-class training in, and become principals of foreign law firms. Moreover, the current restrictions are inconsistent with international best practices and result in the unwillingness of many foreign investors and parties to financial transactions to agree to Chinese law as the governing law of contracts, or to submit themselves to the jurisdiction of Chinese courts or arbitra-tion tribunals for dispute resolution.

These restrictions also conflict with the general principle of reciprocity, given that most of China’s major trading part-ners allow PRC law firms to establish full service offices in their jurisdictions.

LEGAL SERVICES


Improving改善


Deteriorating恶化

24%

47%

29%



概述

法律服务业在中国也一直面临着市场准入限制，

因此，接近一半接受我们2015年《商务环境调查》

的法律服务公司认为中国的投资环境不会改善。

尽管如此，仍有超过半数的公司表示 2015 年将增加在华投

资，范围为 1-20% 不等。

接受调查的法律服务业公司强调有三个方面制约了他们

在华的投资能力和意愿：

• 规章制定不透明、不明确和前后不一致，包括因许可

发放规则和程序的不足、行政机关和司法机关执法或

应用法律解释不公开等所导致的市场准入壁垒；

• 行政审批的不明确或不公正，如超期的行政滞后影响

项目进程、法规的歧义性使制定者偏向国内公司或限

制外资公司；以及

• 司法过程和执法不平等，缺乏透明度，因限制国外律

师参与听证会及其它法律诉讼程序导致有效追索权的

缺失，法律手续或法庭裁决不公开，缺乏司法独立。

挑战

非中国大陆律师事务所在中国大陆面临各种各样的市场

准入限制，72% 的调查对象认为这是制约其在华投资能力

和意愿的最主要因素。其中包括：成立办事处的注册手

续过于繁杂，过程漫长而且结果难以预料；无法雇用中

国合格律师，无法为客户提供全方位法律服务；不允许

出席其客户与政府部门之间的重要会议；差别性的税收

政策。这些限制对外国律师事务所在华运营造成了重大影

响。

中国一直在这一领域对外国律师事务所进行限制，这大

大降低了中国大陆企业和外国企业获得高度专业化的法律

意见和咨询服务的机会，也剥夺了中国执业律师在外国律师

事务所工作、接受全球顶级培训并获得升迁的机会。除此之

外，现有的限制也不符合国际最佳实践，导致许多外国投资

者及相关方不愿意使用中国法律作为合同的适用法律，也不

愿意选择中国法庭或仲裁庭解决争端。

这些限制还有违互惠原则，因为大多数中国的主要贸易

伙伴都允许中国律师事务所在其境内设立分所提供全方位

服务。

上海自贸区开放法律服务市场的一小步

2014 年 11 月 18 日，上海市政府发布《中国（上海）

自由贸易试验区中外律师事务所互派律师担任法律顾问的

实施办法》，允许中国律师事务所与外国律师事务所以协议

法律服务



1-10%

11-20%

21-50%

N/A



24%

28%24%

24%

0%



Small Step of Legal Liberalization in the Shanghai Free Trade Zone

On November 18, 2014, the Shanghai municipal government issued the “Implementing Measures of the China (Shanghai) Pilot Free Trade Zone for the Mutual Assignment of Lawyers as Legal Consultants by Chinese and Foreign Law Firms.” Such measures allow a Chinese domestic law firm and a for-eign law firm to enter into an agreement whereby the Chinese domestic law firm assigns Chinese lawyers to a mainland representative office of the foreign law firm as Chinese legal consultants, while the foreign law firm can assign for-eign lawyers to the Chinese domestic law firm (or a branch thereof) as foreign legal consultants. However, in such “mutual assignment,” both the Chinese and foreign lawyers assigned must only engage in business cooperation within their respective scope of practice and authority. In order to establish such a cooperation scheme, either the Chinese law firm or the foreign law firm has to form an office within the Shanghai FTZ. Meanwhile, both the Chinese law firm and foreign law firm are subject to many specified thresholds regarding the term (three years), partnership organization, employees, internal control, and other requirements.

On the same day, the Shanghai municipal government also issued the “Implementing Measures of the China (Shanghai) Pilot Free Trade Zone for Joint Venture Operations between Chinese and Foreign Law Firms.” Such measures allow a Chinese and a foreign law firm to engage in joint ven-ture (JV) operations to provide Chinese and foreign clients respectively with legal services involving the application of Chinese and foreign laws, or cooperate with each other in handling cross-border and international legal matters. During the period of JV operations, the two law firms will remain independent of each other in terms of legal status, name, and finance, and independently bear civil liability. At least one firm in the JV will be required to maintain an office in the Shanghai FTZ and the involved law firms will have to meet several thresholds regarding the maximum term, employees, organization, and other requirements.

The purpose of such measures is to provide “one-stop shop” services to clients which need services for cross-border legal matters. In addition, such regulatory developments will pro-mote communication and cooperation between Chinese and foreign law firms. However, they do not have any substan-tial impact on the market access constraints described above and on law firm expenses worldwide. Such JVs have rarely been successful elsewhere and do not create genuine mate-rial market openings for international law firms.

RECOMMENDATIONS

• Revise current regulations to allow foreign law firms to hire and admit to their partnerships PRC-qualified lawyers and not require them to give up their PRC lawyer’s license when they join a for-eign law firm.

• Clearly provide in writing that foreign lawyers are permitted to participate in all meetings between their clients and Chinese government departments.

• Simplify the requirements, eliminate the unpredict-ability, and reduce the review period for the estab-lishment of representative offices as well as the opening of additional offices.

• Provide foreign law firms with treatment equiva-lent to that of PRC law firms for PRC income tax purposes.

• Allow foreign law firms to hire foreign non-legal professionals, improve the procedures for register-ing and transferring representatives, increase the length of time visas are valid for representatives, and decrease work permit approval times.

• Do not categorize “consulting on Chinese legal mat-ters” as “prohibited” under the Foreign Investment Catalogue.



的方式，由中国律师事务所向外国律师事务所驻华办事处派

驻中国律师担任中国法律顾问，由外国律师事务所向中国律

师事务所（或者分所）派驻外国律师担任外国法律顾问。不

过，“互派”的中国和外国律师必须在各自执业范围和权限

内展开业务合作，且中国律师事务所或外国律师事务所至少

应有一方在上海自贸区内设立办事处。此外，中国律师事务

所和外国律师事务所还需满足其他多项具体要求，如成立时

间（满三年）、合伙形式、用工、内部控制等。

同一天，上海市政府发布《中国（上海）自由贸易试验

区中外律师事务所联营的实施办法》，允许中国律师事务所

与外国律师事务所以联营形式分别向中外客户提供涉及中国

和外国适用法律的法律服务，或者合作办理跨境和国际法律

事务。联营期间，双方的法律地位、名称和财务各自保持独

立，各自独立承担民事责任。至少有一方应当在上海自贸区

设立办事处，参与联营的律师事务所还需要满足成立时间、

用工、组织形式等条件。

这些措施的设立是为了向有跨境法律服务需求的客户提

供“一站式”服务。而且，这一监管措施的发展也有助于促

进中外律师事务所之间的沟通和合作。不过，这些措施对前

述市场准入限制以及律师事务所的全球收支不会产生任何实

质性的影响。这种联营模式在其他国家也很少有成功案例，

对外国律师事务所来说也不是真正的实质性市场开放。

建议

• 修改现行法律法规，允许外国律师事务所雇用

中国执业律师并得到其合伙人的承认，不再要

求中国执业律师在加入外国律师事务所时放弃

执业证。

• 以书面形式明确规定，允许外国律师参与其客户

与政府部门间的所有会议。

• 简化设立办事处的要求，尽可能消除不可预测性

因素，缩短设立办事处及开设新代表处的审核时

间。

• 在征收中国所得税方面，为美国律师事务所提供

与中国律师事务所同等的待遇。

• 允许外国律师事务所聘请外籍非律师专业人士，

改进代表的注册及调动程序，延长代表的签证有

效期，缩短工作许可的审批时间。

• 在《外商投资产业指导目录》（《指导目录》）中，

不再将“中国法律事务咨询”列入“禁止”清单。



Overview

T he media and entertainment industry (M&E) plays an increasingly important role in China, providing information to Chinese citizens and meeting their demand for world-class entertain-

ment and cultural activities. As China’s international foot-print continues to expand, this industry will play a promi-nent role in the development of its global image, reputation, cultural influence, and economic interests.

Over 50 percent of M&E industry respondents to the 2015 Business Climate Survey estimate their company will increase investment in their China operations in 2015 by 1-20 percent, although market access limitations remain and were select-ed by 71 percent of respondents as limiting their ability and

willingness to invest in China. Furthermore, 57 percent of respondents stated that they feel less welcome in China than before.

However, more so than in other industries, M&E survey respondents reported stronger optimism towards the poten-tial for domestic market growth. Nearly 30 percent rank China as the top priority in their company’s near-term global investment plans.

In addition to challenges stemming from market access restrictions, nearly 80 percent of respondents cited intellec-tual property rights infringements as their number one busi-ness challenge. Further details on this challenge are discussed in the following section. Additionally, seventy-one percent cite inconsistent/unclear laws and regulations and half cite rising labor costs as major business challenges in China.

While cultural and artistic development is a significant ele-ment of China’s 12th Five-Year Plan, censorship and other restrictions threaten to undermine this effort. China’s rich heritage of excellence in entertainment and the arts can be best perpetuated and brought to international attention by fostering initiatives that educate, regulate, and reinforce the commercial value of creative works, and emphasize the need to protect intellectual property rights (IPR).

Challenges

Piracy

IP violations remain significant as evidenced by the huge market for pirated products and content, both on- and offline. Despite these problems, there is a growing trend toward legitimate consumption of properly licensed con-tent online, especially online television content. This is driven, at least in part, by improvements in IPR protec-tion. Occasional enforcement campaigns demonstrate that authorities have the ability to disrupt illegal channels, but organized piracy continues. Despite current Internet con-trols, it is still possible to illegally download music, images, and even whole television programs and films via Chinese search engines.

MEDIA AND ENTERTAINMENT






One among many


地之一

36%

29%

0%

21%

14%



概述

媒体与娱乐业在中国扮演着越来越重要的角色，为

中国公民提供信息，满足其对世界级娱乐和文化

活动的需求。随着中国国际影响力的不断扩大，

媒体与娱乐业将对中国的全球形象、声誉、文化影响力和经

济利益产生重要影响。

接受 2015 年《商务环境调查》的传媒和娱乐业公司中，

71% 的调查对象认为市场准入限制限制了其在华投资的能

力和意愿，但仍有超过 50% 的公司表示 2015 年将增加 1 －

20% 的投资额。另外，有 57% 的调查对象称他们感到在中

国不如以前受欢迎。

不过，相对于其它行业，更多接受调查的传媒和娱乐业

公司对国内市场的增长潜力持高度乐观态度；接近 30% 的

调查对象把中国列为近期投资计划的首选对象。

除市场准入问题，还有接近 80% 的调查对象把知识产

权受侵犯列为行业内头号问题。详见下文讨论。另外，71%

的调查对象认为前后矛盾 / 不明确的法律法规，超过一半

的调查对象认为劳动力成本上升是他们在中国的业务面临的

主要问题。

文化与艺术发展是中国“第十二个五年规划”的重要组成

部分，但中国的审查制度和其他限制制度有可能影响这个领域

的发展。中国应采取积极举措来宣传、规范并增强创意作品的

商业价值，并强调知识产权保护的重要性，从而更好地保护中

国丰富而优秀的娱乐与艺术传统，吸引国际社会的关注。

挑战

盗版

媒体与娱乐行业的知识产权侵权问题仍然非常严重，庞

大的网上与网下盗版产品与内容交易市场就是明证。虽然

存在这些问题，中国合法消费正版网络内容的趋势仍日趋明

显，特别是网络电视内容。这种趋势至少在一定程度上得益

于知识产权保护的推动。

不时开展的知识产权执法行动表明当局有能力阻断非法

渠道，但有组织的盗版行为仍在继续。尽管中国当局对互联

网进行了管控，用户仍可通过中国搜索引擎非法下载音乐、

图片甚至完整的电视节目与电影。

审查制度

中国政府声称，考虑到媒体和娱乐行业的文化影响力，

有必要设立相应的审查制度和其他限制制度。然而，审查制

度似乎也常用于限制外国电视节目、音乐和电影进入中国市

场，同时也具有助长盗版活动的副作用。

常规审查政策一般会延迟电影、电视和音乐作品进入中

国市场，为盗版创造了滋生的环境。例如，合法的 DVD/

蓝光电影光碟需要通过国家新闻出版广电总局的审批，审批

过程至少需要一个月。而另一方面，盗版 DVD 在几天之内

就会出现在市场上，盗取合法产品的市场。实际上，这种审

传媒和娱乐



1-10%

11-20%

21-50%

N/A



23%

39%23%

15%

0%



Censorship

The Chinese government argues that censorship and oth-er restrictions on media and entertainment are necessary because of their cultural impact. However, it appears that censorship is also often used to restrict market access for for-eign television programming, music, and films, while hav-ing the undesirable side effect of fostering piracy.

Censorship policies routinely delay film, television, and music entry into the Chinese market, creating an environ-ment in which pirated products can thrive. In effect, such censorship only encourages piracy while unsuccessfully protecting the Chinese market from competition, undermin-ing the sector’s profitability and inhibiting its ability to cre-ate new entertainment and cultural works.

Finally, censorship of the Internet through site blockages and technical bottlenecks disadvantages both international and Chinese media and entertainment companies. Foreign com-panies are forced to base servers and information systems offshore, and many foreign and large Chinese companies also require virtual private networks in order to access the information they need. This raises costs and becomes a factor when companies consider investing in China. Meanwhile, small Chinese operators and end-users suffer a competitive disadvantage because they cannot access vital information and content in a timely fashion.

Lack of Regulatory Clarity and Enforcement

Many Chinese government agencies – including the Ministry of Culture, Ministry of Industry and Information, State Administration of Press, Publication, Radio, Film and Television (SAPPRFT), and the State Council Information Office – claim a role in regulating media, entertainment, and culture, and a wide variety of laws and regulations place reg-ulatory and market access restrictions on the industry. Lack of clarity about these various roles, on the regulations them-selves, and their inconsistent enforcement, inhibits the devel-opment of the media and entertainment industry in China.

Vague and inconsistent regulations complicate the planning and implementation of business initiatives. In addition, outdated regulations have failed to take into account the rapid develop-ment of Internet and wireless technology, leaving vast areas of online content and service offerings operating with unclear guidelines. Unclear regulations and inconsistent investment approvals also cause China to lag far behind international stan-dards, particularly in retail distribution of books and periodicals.

Market Access Restrictions

Many facets of the media and entertainment industry face market access limitations. For example, regulators currently limit the number of films imported on a revenue-sharing

basis to 34 films a year, of which 14 must be enhanced for-mat. An additional 30 films are permitted on a low, flat-fee or “buy-out” basis. China also maintains an import and distribution duopoly, managed by the SAPPRFT and China Film Group, which dictates what films may be imported and when they may be released. Non-market mechanisms severely restrict foreign television content in China. The gov-ernment effectively prohibits Chinese cable operators from carrying foreign channels, limiting such channels to hotels and residential compounds where a high percentage of for-eigners live. Meanwhile, imported content is barred from Chinese stations during prime time, with additional restric-tions and quotas making it difficult for those in China to watch international content.

Market access for live entertainment continues to be restrict-ed by a lack of transparency, excessive regulation and bureaucracy, and other restrictive practices that stifle growth in the industry. For example, the staging of live events requires securing a license or piwen (批文) in advance. However, this process requires submission of information such as event crew and support staff rosters not typically available until a show is nearly ready to open. Furthermore, no reason is given when a license application is rejected. The lack of transparency and clear guidelines regarding the piw-en, compounded by other issues from security to visas, deter world-class performers from coming to China.

Over the last two years, it has become clear that foreign media companies will only be allowed to expand into this market if they play by the Chinese government’s rules on what stories to cover, and what not to cover. The English lan-guage websites of multiple foreign news providers contin-ued to be blocked in China in 2014, and Chinese authorities appeared to target entire news organizations for intimida-tion and punishment, especially after investigative reporting on so-called “sensitive” topics.

RECOMMENDATIONS

• Reduce non-tariff barriers to entry for all types of foreign media and minimize market access barri-ers for foreign media providers, including media censorship and control. In particular, reclassify foreign investment in media and entertainment from “restricted” to “permitted” and increase all quotas for foreign films.

• Fight IP violations in all media and entertainment sectors, and increase judicial damage awards in order to enhance their deterrent capabilities.

• Establish clearer lines of authority among the MIIT, SAPPRFT, MOC, SCIO, and other media and enter-tainment regulatory agencies, and institute a trans-parent regulatory drafting process that allows for public comment.



查制度只会助长盗版气焰，并不能在竞争中保护中国市场，

降低了娱乐业的利润率，限制了从业者创造新的娱乐与文化

作品的能力。

最后，通过关停网站和技术瓶颈对互联网进行审查的行

为使国际和国内的媒体与娱乐公司受到不利影响。外国公司

被迫将服务器和信息系统移至国外，许多外国公司和中国大

公司需要通过虚拟专用网络才能访问所需信息。这提高了成

本，同时阻碍了企业投资中国市场。另一方面，小型中国运

营商和最终用户则因无法及时获取重要信息和内容而陷入不

利的竞争地位。

缺乏监管透明度与执法力度

许多中国政府机构 – 包括文化部 , 工业和信息化部，

国家新闻出版广电总局，国务院新闻办公室 – 声称在媒体、

娱乐与文化业方面有一定的监管权力；多项法律法规也对该

行业实施监管与市场准入限制。监管权责与法规的不明确以

及执法的不一致都妨碍了中国媒体与娱乐业的发展。

模糊而不统一的规章使业务规划与实施变得复杂。而且，

过时的法规没有考虑到互联网与无线技术的迅速发展，使大

量网络内容和服务产品的运营缺乏明确的指导原则。不清晰

的监管与不统一的投资审批也使中国远落后于国际标准，特

别是在书籍与期刊的零售发行方面。

市场准入限制

媒体和娱乐业许多方面都面临市场准入限制。例如，监

管机构将每年进口的分帐电影数量限制为 34 部，其中 14 部

必须为“高新格式”电影。另外还可以较低的固定价格或“买

断”（buy-out）价格引进 30 部电影。在中国，电影的进

口与发行市场仍在维持两家独大的格局，由国家新闻出版广

电总局和中国电影集团决定进口哪些电影以及何时放映这些

电影非市场化机制严格阻碍了外国电视内容进入中国。中国

政府有效禁止中国有线电视运营商引入外国频道，在外国居

民比例较高的酒店和住宅区限制播放外国电视频道。另一方

面，中国电视台被禁止在黄金时间播放进口节目，另外还有

其他限制和配额要求使中国观众很难收看到国外节目。

进入现场娱乐市场仍受到多项限制，如缺乏透明度、过

度监管、官僚主义、以及其他抑制行业增长的管制措施等。

例如，举办现场活动需要提前获得许可或批文。这个过程需

要主办方提交活动工作人员和支持人员名册等相关信息，而

此类信息往往在活动开场前才会到位。此外，监管机构拒绝

发放许可时并不提供拒绝理由。缺乏透明度、缺乏清晰明确

的指导原则的批文流程，加之安保和签证等问题，都阻碍了

世界一流的表演艺术家来华表演。

为进入中国市场，外国媒体公司必须遵守中国政府的规

定，听从政府指挥，明确哪些新闻可报道哪些不能报道，在

过去两年中这种趋势愈发明显。2014 年，中国继续屏蔽多

家外国新闻提供商的英语网站，中国当局似乎认为整个新闻

体系是威胁和惩罚的目标，尤其在新闻界就所谓的“敏感”

话题进行调查报道之后。

建议

• 减少各类外国媒体进入中国市场的非关税壁垒，减少外国媒体提供商的市场准入壁垒，包括媒体审查与控制。特别是要将媒体与娱乐业的外国投资由“限制”改为“允许”，增加外国电影的整体配额。

• 在所有媒体与娱乐领域打击知识产权违法行为，

提高法定损害赔偿限额，提高震慑力。

• 明确工业和信息化部、国家新闻出版广电总局、

文化部、国务院新闻办公室和其他媒体与娱乐监

管机构的职责权限，建立透明的规则起草流程，

允许征求公众意见。



Less welcome than before受欢迎程度

下降

More welcome than before受欢迎程度增加

57% 36%

7%



Overview

T he Chinese government in 2014 continued its efforts to dampen speculation in the housing market by introducing new policies aimed at restricting purchasing demand. The real estate

industry has also been affected by challenges faced by the retail sector. Leasing at new shopping centers slowed with space increasingly being leased to the food and beverage sector. Landlords in non-traditional locations are offering more incentives to attract and retain tenants, while strata-titled projects are increasingly being left behind as the market evolves. Rising labor costs, shortages of qualified employees, and shortages of qualified management are also top business challenges to China’s real estate industry.

According to AmCham China’s 2015 Business Climate Survey, 50 percent of real estate sector respondents feel that China’s investment environment is improving. The vast majority of respondents have plans to increase investment in their China operations in 2015 with 12 percent planning invest-ment increases of over 50 percent. Members also report rela-tive levels of optimism regarding the potential for domestic market growth over the next two years. In this environment,

72 percent of real estate company respondents rank China as the number one or top-three priority in their company’s near-term global investment plans.

While overall transparency in China’s commercial real estate market has been improving, the country was recently upgraded to semi-transparent by the JLL Global Real Estate Transparency Index, recognizing improvements that have been made over time. The introduction of real estate invest-ment trust (REIT) structures has coincided with improved transparency in several markets across the globe. CITIC Securities was granted permission in May 2014 to issue the first REIT in China. Given the large and critical role that real estate plays in China’s economy, AmCham China supports continued attention to the regulatory side of China’s real estate market, particularly the consistency of enforcement of rules across jurisdictions.

Challenges

Consistency of Quality and Regulatory Enforcement

The rapid development of real estate in China has at times led to problems. Regulatory enforcement is inconsistent, construction materials are sometimes suspect, and profes-sional real estate management is lacking. Fifty-six percent of real estate industry members cited rule-making that is non-transparent, unclear or inconsistent as a practice that limits their companies’ ability and willingness to invest in China. Furthermore, these factors contribute to market destabiliza-tion, poor investment decisions, and defective construction. The government recently proposed to increase site inspec-tions and enhance regulation of construction materials. Progress in these areas would result in a more stable real estate market and higher quality assets.

The local administration of property rights and interests reg-istration, including land-use rights, leases, mortgages, and other rights and interests in real property, as well as rules governing the priority of public security rights, involves a complex multiplicity of regulations that are neither clear nor consistently observed by local authorities. Due to the result-ing limited availability of accurate information, bona fide holders of property rights or liens can have difficulty enforc-ing their rights or find their rights undermined by competing

REAL ESTATE


Improving改善


Deteriorating恶化

22%

28%

50%



概述

中国政府在 2014 年出台了限购的新政策，以继续

抑制房地产市场的投机行为。房地产行业还受到

零售行业的影响。新建购物中心的租赁放缓，其

场地越来越多地出租给餐饮业。非传统地段的业主采取更多

激励措施以吸引和挽留租户，而分层所有权项目则随着市场

发展日益落后。劳动力成本增加、缺乏合格雇员及合格管理

都是在中国房地产公司主要面临的主要问题。

根据 2015 年中国美国商会的《商务环境调查》报告，

50% 受调查的房地产公司认为中国的投资环境在改善。绝

大多数调查对象计划在 2015 年扩大在华业务投资，其中

50% 的公司计划投资增长额度超过了 12%。成员们对国内

市场在未来两年内的增长潜力持相对乐观态度。在这种情况

下，72% 的调查对象把中国列在近期全球投资计划的首位

或前三。

随着中国商业地产市场的整体透明度不断改善，仲量联

行全球房地产透明度指数（Index）最近将中国提升到“半

透明”级，显示了对中国所取得的成绩的认可。房地产投资

信托基金（REIT）结构的引入与全球多个市场中透明度的

改善同步。中信证券股份有限公司（中信证券）于 2014 年

5 月获准在中国发行首只房地产投资信托基金。鉴于房地产

在中国经济中所扮演的主要角色和发挥的重大作用，中国美

国商会支持中国政府持续关注中国房地产市场的监管层面，

尤其是不同司法辖区的执法一致性问题。

房地产



1-10%

11-20%

21-50%

N/A



6%12%

23%

29%

12%

18%






One among many


地之一

50%

22%

0%

22%

6%



third parties. This lack of clarity and reliability also carries over into enforcement, as local courts do not always apply laws consistently. Forty-four percent of survey respondents say their ability and willingness to invest in China is limited by judicial processes and enforcement that are unequal, lack transparency, and lack effective recourse – particularly local discretion in deciding whether to enforce laws and a lack of judicial independence.

While anecdotal evidence suggests that corruption was once commonplace, the current administration has made signifi-cant progress in prosecuting corrupt officials and business people. The administration’s efforts to address anti-corrup-tion measures have bolstered confidence that laws govern-ing business in China will be upheld and support a busi-ness environment that is fair to both domestic and foreign companies.

The Ministry of Housing and Urban-Rural Development is spearheading the creation of public, readily accessible pro-vincial and national property rights and interests registries, with a view towards improving urban planning, real estate transaction efficiency, and construction and quality stan-dards. To accelerate this process, the initiative was elevated to the State Council level, underscoring its importance to the administration’s anti-corruption campaign and the forth-coming implementation of a property tax system. AmCham China supports this initiative and hopes to see its rapid implementation.

The number of landlords that adhere to previously agreed contractual terms is improving, but some landlords and ten-ants continue to dishonor contractual obligations. Improved enforcement of contracts is beneficial to all parties involved in the contract and to the overall market. While AmCham China respects the challenges faced in regulating a rapidly transforming market, enforcement of contractual obligations is an absolute necessity and remains a cornerstone in any market economy looking to attract and retain leading global corporations.

RECOMMENDATIONS

• National authorities should adopt targets for delivering enhanced transparency, broadly defined, across real estate markets and related markets for securities.

• Policy makers at the national and local levels should engage with the real estate industry on the impact of public policies on the real estate sector.

• Establish a platform for tracking significant new policies and recent research, and communicate these to senior decision-makers in the real estate and financial sectors, and to public sector policy makers. Specific areas of focus should include:

w The economic costs and benefits of alternative policy options, as applied to real estate sectors;

w Developments in derivative markets and their impact on real estate;

w Reform of the banking sector and its impact on real estate;

w The impact of microeconomic factors, such as planning regimes, bankruptcy processes, and consumer protection legislation, on real estate market volatility;

w Development of readily and publicly accessible registries for provincial and national property rights and interests.



挑战

质量与执法的一致性

中国房地产快速增长的同时也产生了诸多问题，如法规

执行不一致，建筑用料有时存在质量问题，缺乏专业的房地

产管理。56% 的房地产业成员认为规章制定不透明、不明

确或前后不一致限制了其在华投资能力和意愿。此外，这些

可能会导致市场失衡，投资决策失误或建筑缺陷。政府已于

近日表示将加大现场审查力度，完善针对建筑材料的相关法

规。如能奏效，这些措施将进一步稳定房地产市场并提高资

产质量。

地方产权和权益注册的管理涉及多重繁杂的法规，如土

地使用权、租赁、抵押和其他地产权益，以及与公共安全优

先权有关的条例等，但这些法规并不明晰，而且地方政府的

执行也不尽统一。在此情况下，真正的产权、抵押权权益人

由于无法掌握准确的信息，较难行使其权益而且可能会受

到竞争第三方的侵害。地方法院在使用适用法律时也不尽一

致，继而导致执法缺乏明确性和可靠性。44% 的受访对象

表示在华投资能力和意愿受影响主要源于司法程序和执法不

公平、缺乏透明度以及缺乏有效的追索权——特别是由地方

法律机构自主决定是否执法、缺乏司法独立性。

尽管坊间传言腐败在中国曾经司空见惯，但本届政府已

经在打击腐败官员和商界人士方面迈出重大步伐。政府强化

反腐措施的努力让我们重振信心，我们相信中国商业相关的

法律将得到有效执行并有助于建立对国内外企业均为公平的

商务环境。

住房和城乡建设部正负责牵头建立对公众开放的省级或

国家级产权登记体系，这将有利于改善城市规划，提升房地

产交易效率，提高建筑和质量标准。为加速这一过程，这一

举措上升到国务院层面，凸显了其对政府的反腐运动和即将

实施的房产税制度的重要性。中国美国商会支持这一举措并

希望其能迅速实行。

越来越多的业主开始遵守先前商定的合同条款，但还有

部分业主和租客仍继续拒绝履行合同义务。更好地推动合同

的执行将使合同当事各方乃至整个市场受惠。中国美国商会

承认，对这种瞬息万变的市场进行监管有很大难度。然而，

履行合同义务是必不可少的，这一直是任何市场经济体吸引

和留住世界一流企业的重要基石。

建议

• 国家有关部门应制定目标，明确界定整个房地

产市场以及相关证券市场并提高其透明度。

• 国家和地方各级政策制定部门应与房地产行业共

同讨论公共政策对房地产行业的影响。

• 建立平台以跟踪重大的新政策和最新研究，并将

此类内容传达给房地产和金融行业的高级决策者

以及公共领域的政策制定者。具体重点领域应包

括：

w 适用于房地产行业的不同政策所产生的经济成

本和效益；

w 衍生产品市场的发展状况及其对房地产的影

响；

w 银行部门的改革及其对房地产的影响；

w 微观经济因素，如规划制度、破产流程和消费

者权益保护立法等，对房地产市场波动的影响；

w 建立向公众开放的省级和国家级产权登记体

系。



F or 77 percent of AmCham China survey respon-dents in the retail, e-commerce, and express deliv-ery industries, China is either the number one or top-three priority for their company’s global invest-

ment plans. That said, thirty-eight percent have no plans to increase investment in their China operations in 2015 and nearly 70 percent expressed relative pessimism towards competitive pressures when rating their two-year outlook. Furthermore, 46 percent of respondents feel less welcome in China than before.

Industry overcapacity was selected by 57 percent of respon-dents as their top business challenge, followed by rising labor costs (50 percent) and increasing Chinese protection-ism (43 percent). Chinese government funding provided solely for domestic competitors, market access limitations, local partner/equity requirements, and standards setting processes that exclude or treat FIEs unequally were cited as the top three measures limiting companies’ ability and will-ingness to invest in China’s retail, e-commerce, and express delivery sectors.

RETAIL & E-COMMERCE

Overview

China’s retail industry experienced many challenges and opportunities in 2014. Physical stores experienced enor-mous pressure from declining sales and competition from online retailers and new technologies, which are transform-ing China’s modern retail industry. Yet, potential new mar-kets are developing in second, third, and fourth-tier cities as China continues to urbanize. E-commerce, logistics, and distribution remain the key forces driving domestic consumption.

The Chinese government continues to improve market access for foreign retailers and promote the develop-ment of the circulation sector (which includes wholesale, retail, and logistics) by improving legal and regulatory systems, streamlining administrative procedures, loosen-ing market access constraints, and shifting from market entry approval requirements to concurrent and post-event regulations.

FIEs play an important role in China’s retail industry, accounting for about 15 percent of employment in the sec-tor. AmCham China hopes that the Chinese government will continue its efforts to create a fair and transparent regulatory environment for all retail entities and consistently enforce laws and regulations.

Challenges

Current regulatory and enforcement mechanisms concen-trate on downstream, customer-facing food operators in the food supply chain. Strengthened supervision is still needed upstream in the food supply chain (e.g., in farms, process-ing centers, slaughterhouses) where there is often a lack of capacity to implement or awareness of relevant laws, regula-tions, and standards.

RETAIL, E-COMMERCE, DISTRIBUTION, AND LOGISTICS






One among many


地之一

62%

15%

0%0%

15%

8%



77% 的接受中国美国商会调查的零售、电子商务和快递业

公司将中国列为其全球投资计划的首位或前三。尽管如此，

38% 的调查对象在 2015 年无对华业务投资增长计划，接近

70% 的调查对象对未来两年的竞争压力持相对乐观态度。

此外，46% 的调查对象感到在中国不如以前受欢迎。

57% 的调查对象认为行业产能过剩是最主要的业内问

题，接下来是攀升的劳动力成本（50%）、以及中国正在增

长的保护主义（43%）。零售业、电子商务、以及快递业

公司认为制约其在华投资能力和意愿的前三大最主要的因素

为：中国政府仅提供资金给国内竞争者、市场准入限制、地

方合作伙伴 / 平等要求以及将外资企业排除在外或使其受

到不公平待遇的标准制定过程。

零售与电子商务

概述

2014 年，中国的零售行业经历了诸多挑战和机遇。实

体店面临诸多压力，如销售下滑，来自网上零售商的竞争，

新技术的不断涌现等。中国的现代零售行业正在发生转变。

随着中国城镇化进程的推进，二线、三线和四线城市，作为

潜在的新市场，也在发展壮大。电子商务、物流和配送仍然

是推动国内消费的重要力量。

中国政府采取了多种措施来继续改善外资零售企业的市

场准入，促进流通领域（包括批发、零售和物流）的发展，

如改进法律和监管制度、简化行政程序、放宽市场准入限制、

从市场准入审批要求转移到事中事后监管等。




1-10%

11-20%

21-50%

N/A



38%

15%

31%

8%

8%

0%



46%46%

8%

More welcome than before受欢迎程度增加

Less welcome than before受欢迎程度

下降



In reality, food safety problems often arise before the prod-uct reaches the retailer, and it is very difficult for retailers to monitor the entire supply chain of all products sold in their stores. When working with suppliers, a retailer is only able to review the supplier’s certificates, licenses, and test reports. It is costly and time consuming to verify those papers’ authenticity or ensure that the supplier’s food products are always processed and transported in compli-ant ways. However, when food producers fail to meet rel-evant standards or behave fraudulently (e.g., forging cer-tificates), retailers are often the ones who are penalized and suffer reputational damage.

In recent years, increasing numbers of city governments, and sometimes even district governments, require FIE retailers to set up separate wholly foreign-owned enter-prises (WFOEs) in their jurisdictions. Retail is a capital-intensive business and the cost of investment in a store often results in financial losses during the first years of a store’s operation. Local governments demand that a store register as a WFOE in order to receive tax revenues. As the store loses money in its first years, the city receives no tax revenue and, importantly, the losses incurred by the busi-ness become trapped in the legal structure and are not tax deductible for the larger entity. This increasingly common phenomenon of requiring that stores register as WFOEs is tax-inefficient and onerous. AmCham China suggests that government agencies at all levels stop this practice and take measures to promote a unified nationwide and open market system. Alternate structures should be explored, for example, whereby WFOEs are only established at the provincial level and provincial governments distribute tax revenue to their cities.

AmCham China members continue to experience prob-lems caused by so-called professional complainants (also known as professional faultfinders) – a phenomenon unique to the Chinese market. These complainants seek out retail outlets’ and online vendors’ mistakes on pric-ing, labels, or product quality, and extort retailers for compensation under threat of reporting the problem to the government or media.

Professional complainants differ entirely from ordinary consumers, based on their focus and behavior. The behav-ior of professional complainants resembles that of members of organized crime. It is commonplace for them to physical-ly abuse store management and cause disruptions affecting ordinary customers. They appear focused exclusively on large retailers, who face reputational and compliance costs related to the complaints. Their actions offer virtually no value for consumers and waste public resources with their high volumes of reports.

Industry Opening within FTZs and other Reforms

• Foreign investment for online transaction or data pro-cessing businesses has been relaxed in the Shanghai FTZ.

• Foreign investors are now permitted to establish wholly foreign-owned e-commerce companies in the FTZs (previously capped at 55 percent ownership; outside of the FTZs, foreign ownership is still capped at 50 percent).

• Foreign investors can now apply for VATS Permits to engage in “e-commerce business” within the FTZs; however, the definition of “e-commerce business” has not been precisely defined.

• Establishment of the China (Hangzhou) Cross-Border E-commerce Comprehensive Pilot Zone (March 12, 2015).

• The Zhejiang government announced a three-year plan (2015-2017) to support the development of cross-border e-commerce and plans to build 100 provincial level cross-border e-commerce parks by 2017.

EXPRESS DELIVERY

Overview

Following the reform and opening of China’s economy, express delivery service (EDS) providers have emerged to develop a thriving industry. The steady development of the EDS industry promotes economic development and interna-tional trade, supports industrial and commercial enterpris-es, and provides services for Chinese consumers. The EDS industry also plays an increasingly important role in the development of China’s service and logistics industries, and helps drive employment and economic stability.

However, the express delivery industry in China still faces several problems. The industry has failed to experience a scale effect and competitiveness remains suboptimal. Quality and efficiency suffer from unnecessarily burden-some regulatory requirements. Meanwhile administrative surcharges on cross-border clearances have substantially risen. Such obstacles cause uncertainty and hinder the devel-opment of China’s EDS industry.

Challenges

AmCham China believes that the “Express Regulation” – cur-rently under review by the SCLAO on the basis of a draft by the State Post Bureau (SPB) and Ministry of Transportation – will be of major importance to the EDS industry. The



外资企业在中国零售行业中扮演着重要角色，约占该行

业就业的 15%。中国美国商会希望，中国政府能够继续努

力为所有零售商创造一个公平、透明的监管环境，始终如一

地执行各项法律和法规。

挑战

目前的监管和执行机制集中在食品供应链下游，即面对

消费者的食品经营者。食品供应链的上游（例如农场、加工

中心、屠宰场），因为相关法律、法规和标准的执行不力或

意识淡薄，仍需要加强监管。

事实上，食品安全问题经常发生在产品运抵零售商之前，

零售商很难监控店内销售的所有产品的整个供应链。对于合

作的供应商，零售商只能审查这些供应商的证明、许可和检

验报告。验证这些文件的真伪或者确保供应商对食品产品的

加工和运输符合相关规定是一件费钱费时的事情。然而，当

食品生产者未能遵守相关标准或者存在欺诈（例如，伪造证

明）时，受到处罚并且声誉受损的却经常是零售商。

近年来，有越来越多的市政府甚至区政府要求零售商在

其管辖范围内设立外商独资企业。零售业属于资本密集型行

业，投资一个店铺的成本经常导致店铺在最初经营的几年面

临亏损。为了收税，地方政府要求店铺注册为外商独资企业。

而店铺最初几年亏损，城市并不会实现税收收入，重要的是，

较大规模的企业发生的损失由于法律限制，无法享受减免税

款的待遇。这种日益普遍的要求店铺注册为外商独资企业的

做法给企业造成沉重的负担，缺乏税收效率。中国美国商会

建议各级政府停止这种做法，采取措施推动建立一个统一、

开放的全国性市场体系。应当探索其他结构，例如，只在省

级层面设立外商独资企业，由省政府向下辖城市分配税费收

入。

2014 年，中国美国商会的会员企业继续受到职业索赔

人（也称为“专业找错人”）- 这一中国市场特有现象 –

所带来的困扰。这些索赔人搜罗零售商店和网上销售商在价

格、标签或产品质量方面的错误，以向政府或媒体报告作为

要挟，借机向零售商索要赔偿。

从关注焦点和行为方式来看，职业索赔人与普通消费者

截然不同。职业索赔人的行为与有组织犯罪成员的行为相似。

他们经常实质性地扰乱店铺经营，给普通消费者造成不良影

响。他们似乎将目光放在那些大型零售商上，他们一旦遭遇

投诉就将面临信誉和合规成本。这些人的行为对消费者几乎

没有任何价值，他们的大量举报也是浪费公共资源。

自贸区的对外开放和其它改革

• 上海自贸区已放宽国外对网上交易的投资或数据处理

企业的限制。

• 目前已允许国外投资者在自贸区成立外商独资的电子

商务公司（以前的拥有权控制为 55%；自贸区之外的

外商拥有权仍限制在 50%）。

• 自贸区内，外商可申请增殖电信业务 (VATS) 许可证，

从事“电子商务”业；但是“电子商务”至今尚未有

明确定义。

• 成立中国（杭州）跨境电子商务综合实验区（2015 年

3 月 12 日）。

• 浙江政府宣布了支持跨境电子商务发展的三年计划

（2015-2017），计划在 2017 年前建立 100 个省级电

子商务产业园。

快递

概述

自中国经济改革开放以来，快递服务企业应运而生，并

发展成为一个朝气蓬勃的行业。快递行业的稳步发展促进了

经济发展和国际贸易，支持着工商企业的发展，并服务于中

国消费者。快递行业在推动中国服务业和物流业的发展中发

挥着越来越重要的作用，并有助于增加就业和促进经济稳定。

然而，中国的快递行业仍存在一些问题。比如，行业没

有实现规模效应，行业竞争仍然无序，服务质量和效率受到

不必要的繁冗监管要求和限制，跨境通关的行政性收费大幅

上涨等。这些因素导致中国快递行业的发展面临不确定性，

发展受阻。



“Express Regulation” will have important implications for EDS standards and business operation permits, two key fac-tors in the development of the industry.

As drafting of the regulation has already begun, we look forward to greater transparency in the process of collecting comments and recommendations. It is crucial that enterpris-es be given a role in the process, as the regulation involves three government departments and will have wide-reaching effects on the industry as a whole. Industry perspective is key to ensuring that the new regulation makes sense not only from a legal perspective but also reflects industry realities.

Thus, the scope of business for enterprises providing EDS both between provinces, autonomous regions, and munici-palities, and internationally, should span the entire coun-try. However, according to the “Business Scope of Express Business Operation Permits,” the business scope for an EDS provider is restricted to the province in which it is regis-tered and has received SPB approval, effectively restricting business operations beyond said province. Therefore, there is an apparent inconsistency between the stated scope of an EDS operating permit and the regulations included in “The Regulation for the Management of Express Business Licensing” and Postal Law.

Streamline Issuance of Prefecture-Level Permits

Furthermore, the SPB has established over 350 prefectural-level postal authorities. According to the above described regulations, an EDS provider must apply city-by-city to each authority when applying for trans-provincial and interna-tional business permits. If an EDS provider wishes to estab-lish an operating network that covers all of China, it must obtain over 350 approvals. Thus, the market is artificially divided into over 350 distinct administrative regions, severe-ly limiting business expansion and commodity circulation.

Allow Branch Offices to File for the Record

Article 54 of the Postal Law states that when an enterprise that provides EDS sets up branches, merges with another enterprise, or divides into separate enterprises, it must make a filing with the postal administrative department (i.e., the SPB) for the record. We understand filing for the record to mean the enterprise should handle industrial and commer-cial registration formalities and supply any needed supple-mentary materials.

However, according to Article 12 of the “Administrative Measures for the Express Delivery Market,” an EDS pro-vider wishing to set up a branch office “shall go through registration formalities at the Administration for Industry and Commerce [AIC] in the place where the branch or office is located, with the license (duplicate) for express delivery business operation of an enterprise with a legal person status

and the directory of its branches.” In other words, to estab-lish a branch office, an EDS provider would have to first obtain approval from the SPB and add the newly established branch office into the branch directory before undergoing local AIC registration formalities. Such requirement runs counter to the nature and meaning of filing for the record, burdening the licensing approval process.

RECOMMENDATIONS

Retail and E-commerce

• Regulate the retail industry, in all its business formats, under the same regulatory system, using consistent enforcement standards nationwide.

• Further define and distinguish legal liability between food operators and producers and bal-ance the focus of supervision between all sectors of the food supply chain to ensure the effectiveness of food safety regulations and to promote societal governance on food safety.

• Streamline the efforts of relevant agencies to build a unified national food traceability system.

• Reconsider the necessity of legislation on the trans-actions between retailers and suppliers.

• Conduct comprehensive studies on professional complainants to align understanding on this phe-nomenon and to identify effective measures to tackle it.

Express Delivery

• Grant FIEs more opportunities to participate in the regulatory process based on the principal of transparency and provide timely feedback to industry recommendations by holding sympo-siums or through other channels.

• Clearly define the main permit examination and approval body for intra-provincial, trans-provin-cial, and international EDS providers.

• Issue permits for conducting trans-provincial and international EDS at the provincial level.

• Clarify the application process for establishing branch offices and allow branch establishments to be filed for the record, as intended by Article 54 of the Postal Law.



挑战

中国美国商会认为，国家邮政局和交通部起草的、国务

院法制办公室正在审议的《快递条例》对快递行业至关重要。

《快递条例》将对快递服务标准和业务经营许可这两个快递

行业发展的关键因素产生重大影响。

既然条例起草已经开始，我们希望征求意见和建议的过

程能够更加透明。由于《条例》涉及到三个政府部门，并将

从整体上对快递行业产生深远影响，因此，允许快递企业参

与这一过程是十分重要的。为了确保新条例既符合法律要求，

又能反映出真实的行业现状，业界的观点很重要。

因此，对跨省、自治区、直辖市经营或者经营国际快递

业务的快递企业而言，业务范围应当涵盖全国。但是，按照

“快递业务经营许可的业务范围”的规定，快递企业的业务

范围仅限于其注册并得到国家邮政局批准的省份，限制其在

该省份之外的区域开展业务经营。快递经营许可给出的业务

范围显然与《快递业务经营许可管理办法》和《邮政法》的

规定存在出入。

简化县级许可签发程序

此外，国家邮政局已经在 350 多个县设立了邮政管理机

构。根据上面提到的规定，快递企业申请经营跨省和国际快

递业务时，必须向每个城市的管理机构提出申请。如果一家

快递企业希望建立一个覆盖全国的经营网络，则必须取得

350多个批准。市场被人为分割成 350多个不同的行政区域，

严重限制了业务的拓展和商品的流通。

允许分支机构申请备案

根据《邮政法》第 54 条，快递企业设立分支机构或者

合并、分立的，应当向邮政管理部门（即国家邮政局）备案。

按照我们的理解，备案是指企业应当办理工商登记手续并且

提供所需的补充资料。

但是，《快递市场管理办法》第 12条规定，希望设立分

支机构的快递企业应当“凭企业法人快递业务经营许可证（副

本）及所附分支机构名录，到分支机构所在地工商行政管理部

门办理注册登记”。也就是说，要想设立分支机构，快递企业

首先必须取得国家邮政局的批准并将新设立的分支机构加入分

支机构名录，然后才能办理当地工商注册登记手续。这项要求

有违备案的本质和用意，加重了许可申请过程的负担。

建议

零售和电子商务

• 将各种形式的零售业务模式纳入统一监管，实

行全国统一的执行标准。

• 进一步明确和区分食品经营者和生产者之间的法

律责任，平衡对食品供应链上各个行业的监管重

点，确保对食品安全实施有效监管，促进食品安

全的社会治理。

• 简化相关机构的流程，建立全国统一的食品追溯

体系。

• 重新考虑对零售商和供应商之间的交易进行立法

的必要性。

• 对职业索赔人进行广泛调研，统一对这一现象的

认知，确定有效的解决措施。

快递

• 根据透明原则，为外资企业提供更多参与法规

制定过程的机会，通过举办研讨会或其他渠道

及时回应业界提出的建议。

• 明确省内、跨省和国际快递企业的许可审批机构。

• 由省级机构签发跨省和国际快递业务的经营许可。

• 明确设立分支机构的申请程序，按照《邮政法》

第 54 条的本意进行分支机构申请备案。

© 2015 by the American Chamber of Commerce in the People’s Republic of China (AmCham China), all rights reserved. This report may not be reproduced either in part or in full without the prior written consent of AmCham China.

中国美国商会拥有本报告的版权©，并保留其他一切权利。未经中国美国商会书面授权，不得对本报告或本报告中的部分章节进行复制。

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