On August 4, the General Office of the Hainan Provincial People's Government issued the Notice on Printing and Distributing the Three-Year Action Plan for Accelerating the Construction of a Modern Industrial System with Distinctive Features and Advantages in Hainan Province (2025-2027).
The document specifies efforts to expand the marine new energy industry by planning and promoting integrated demonstration projects for offshore wind power-based hydrogen and alcohol production and refueling. It aims to develop specialized marine engineering equipment industries, enhance deep-sea oil and gas equipment testing capabilities, and promote local production of drilling instruments, subsea Christmas trees, and high-value-added oilfield service products. Additionally, it seeks to boost marine technological innovation capabilities, establishing Hainan as a hub for "Smart Ocean" deep-sea technological innovation and a testing, pilot-scale, and production service platform.
The plan supports Haikou in fostering green manufacturing industrial clusters focusing on NEVs, environmental protection, and plastic ban sectors. Leveraging offshore wind resources along the western ring of the island, it aims to vigorously develop offshore wind power, striving to achieve an output value exceeding 12.5 billion yuan for the Changjiang clean energy industrial cluster by 2027, with clean energy installed capacity accounting for over 87% of the province's total.
The policy details are as follows:
Notice of the General Office of the Hainan Provincial People's Government on Printing and Distributing the Three-Year Action Plan for Accelerating the Construction of a Modern Industrial System with Distinctive Features and Advantages in Hainan Province (2025-2027)
Qiong Fu Ban [2025] No. 36
To the People's Governments of Cities, Counties, and Autonomous Counties, and Directly Affiliated Units of the Provincial Government:
The Three-Year Action Plan for Accelerating the Construction of a Modern Industrial System with Distinctive Features and Advantages in Hainan Province (2025-2027) has been approved by the Provincial Party Committee and Provincial Government and is hereby issued to you for earnest implementation.
General Office of the Hainan Provincial People's Government
July 28, 2025
(This document is proactively disclosed)
Three-Year Action Plan for Accelerating the Construction of a Modern Industrial System with Distinctive Features and Advantages in Hainan Province (2025-2027)
To fully implement General Secretary Xi Jinping's important speeches and instructions on Hainan's work, this plan aims to build Hainan into a key practice base for new quality productive forces, aligned with the strategic positioning of the Hainan Free Trade Port as "three zones and one center." It focuses on cultivating and expanding high-tech, high-efficiency, and high-quality characteristic industries represented by three future industries and tropical high-efficiency agriculture, while upgrading and enhancing intelligent, green, and integrated advantageous industries such as tourism, modern services, and high-tech industries, thereby promoting industrial chain extension and optimization.
I. Overall Objectives
By 2027, the added value of the four leading industries will account for approximately 70% of GDP, further strengthening their role in supporting high-quality economic development. The construction of an international tourism consumption center will advance, continuously unleashing tourism consumption potential. The integration of producer services with advanced manufacturing industries has accelerated, while consumer services have been optimized and upgraded towards higher quality and diversity. The added value of modern service industries now accounts for nearly 30% of GDP. Scientific and technological innovation has been deeply integrated with industrial innovation, with the aim of achieving an R&D investment intensity of 1.8% in the province by 2027, and the added value of high-tech industries accounting for over 17% of GDP. Tropical characteristic and efficient agriculture has formed a collaborative development pattern of "connecting the secondary and tertiary industries", with the annual growth rate of the added value of the entire industry chain of agricultural characteristic leading industries exceeding 5%.
II. Characteristic Industry Cultivation Initiative
Based on resource endowments, we will fully leverage the comparative advantages of climate temperature, ocean depth, and geographical latitude to continuously cultivate and expand three future industries: seed industry, deep-sea industry, and aerospace industry. We will also expand and strengthen tropical characteristic and efficient agriculture, and cultivate a number of characteristic industry clusters.
(1) Develop and expand the new quality productive forces in the seed industry. Accelerate the construction of the "Nanfan Silicon Valley" and vigorously develop the Nanfan industry of "seed sources, seed industry, and seed market". Actively align with national strategies in basic and cutting-edge research in the seed industry, build major scientific research facility platforms focusing on biotechnology, artificial intelligence, and big data computing, and actively introduce national-level seed industry scientific and technological innovation platforms, and scientific research and teaching institutions. Implement the seed industry revitalization initiative in depth, and accelerate the breakthrough of a number of breakthrough varieties. Cultivate and expand new biotechnology breeding industries, build a number of advantageous seed industry enterprises, and strengthen the CRO enterprises in the Nanfan seed industry that provide scientific research services. By 2027, the operating revenue of the Yazhou Bay modern seed industry cluster will exceed 20 billion yuan.
(2) Promote the high-quality development of the deep-sea industry. Guided by the urgent needs of major national strategies and taking the construction of a shared intelligent manufacturing platform as a breakthrough point for industrialization, we will accelerate the construction of a modern marine industry system and achieve the goal of recreating a "marine Hainan". Cultivate and expand emerging marine industries, accelerate the increase in reserves and production of marine oil and gas minerals, conduct potential evaluations of "multi-gas co-production and multi-energy utilization" in key areas, and research and develop key technologies for deep-sea oil and gas field development. Actively promote the productive trial production of natural gas hydrates in key sea areas. Expand the marine new energy industry, plan and promote the integrated demonstration project of offshore wind power hydrogen and alcohol production and refueling. Develop characteristic marine engineering equipment industries, improve the testing capabilities of deep-sea oil and gas equipment, and promote the local production of drilling instruments, underwater Christmas trees, and high value-added oil service products. Enhance marine scientific and technological innovation capabilities, and build a "smart ocean" deep-sea scientific and technological innovation source, testing, pilot production, and productive service platform. By 2027, the operating revenue of the deep-sea science and technology industry cluster in Sanya Yazhou Bay Science and Technology City will exceed 6 billion yuan.
(3) Accelerate the cultivation of the entire industry chain of commercial aerospace. We will focus on cultivating the aerospace industry cluster in the Wenchang International Aerospace City, building major scientific and technological innovation bases for aerospace, and expanding the rocket, satellite, and data chains. We will promote the enhancement of the core capabilities of commercial space launch sites and accelerate the construction of Phase II and supporting facilities for commercial space launch sites. We will advance the construction of satellite super factories, commence the construction of projects such as satellite component manufacturing centers and rocket large-section manufacturing centers, actively introduce commercial aerospace enterprises to establish assembly and testing capabilities, and promote the integrated development of satellites, rockets, and launch sites. We will leverage the leading role of industry giants and rely on innovation carriers and platforms such as the Hainan Satellite Data and Application Research Center and the Hainan Aerospace Technology Innovation Center to carry out technological breakthroughs, and the application and commercialization of research outcomes. By 2027, the operating revenue of the aerospace industry cluster in the Wenchang International Aerospace City is expected to reach 10 billion yuan.
(IV) Promoting the Extension and Expansion of Tropical Specialty and High-Efficiency Agriculture Chains. Strengthen the specialty industry chains for mangoes, pineapples, Wenchang chickens, East Star Groupers, winter vegetables and fruits, coffee, pepper, rubber, and agarwood. Cultivate "small but exquisite" specialty industries such as Shanlan rice, pandan, and large-leaf tea, and actively introduce, cultivate, and promote "new, unique, and excellent" varieties. Support the development of fisheries in a park-based, large-scale, and eco-friendly manner, and build modern fisheries industrial parks such as Wenchang Fengjiawan to high standards. Promote the integrated development of fruit and vegetable cleaning, sorting, pre-cooling, preservation, drying, storage, and product packaging, and strengthen the application of processing and value-added policies in industries such as grains and oils, meat, and nuts. Deepen brand building and cultivate Hainan agricultural product brands relying on the "Hainan Fresh" platform. By 2027, the output value of the Haikou high-end food processing industry cluster and the Ding'an Taling tropical food processing industry cluster is expected to exceed 10 billion yuan, and that of the Laocheng Science and Technology New City agricultural and sideline food processing industry cluster is expected to reach 14 billion yuan.
III. Action Plan for Enhancing Competitive Industries
Guided by tourism, modern services, and high-tech industries, we will optimize the supply of tourism products, expand industries such as port and shipping logistics and modern finance, focus on "three articles on overseas consumption repatriation", improve industries such as petrochemical new materials, green and low-carbon development, and the digital economy, and build competitive industries in Hainan.
(V) Optimizing the Supply of Tourism Products. We will deepen the integrated development of "X + tourism", improve space tourism, high-end health and wellness tourism, tropical rainforest tourism, and Li and Miao cultural tourism, vigorously develop new consumption formats such as performing arts tourism, sports tourism, and silver-haired tourism, plan high-quality tourism projects, actively connect with well-known international cultural and tourism IPs, form a clustering effect of "large projects driving large consumption", and build core carriers for international tourism and consumption centers. We will deepen the construction of product systems for the island-circling tourism highway and the tourism highway around the Tropical Rainforest National Park. Actively cultivate world-class tropical coastal tourism resorts and strive to create high-level tourism core attractions. We will support Sanya and Lingshui in building an entire industry chain for film and television short dramas. By 2027, the operating revenue of the leisure tourism industry cluster in Sanya Haitang Bay will exceed 50 billion yuan, the number of inbound tourists in the province will reach 2.3 million, and 160 overseas routes will be opened.
(6) Strengthen the upgrading of the port-adjacent industry's capacity. We will support Yangpu Port in becoming a regional international container hub port and promote it to become an important node for China's trade network with RCEP countries and the linkage of the New International Land-Sea Trade Corridor's domestic and foreign trade networks. We will accelerate the expansion and upgrading of the navigation capacity of the Qiongzhou Strait and upgrade the old vessels in the Qiongzhou Strait. We will accelerate the coordinated development of Yangpu's "port-adjacent industry cluster + port-adjacent logistics park," support Yangpu in carrying out the "international centralised procurement + processing value-added + domestic distribution" business for bulk commodities. We will study and promote the opening of a ro-ro shipping route from Basuo Port to Vietnam and accelerate the construction of the Gaopai Port Area of Basuo Port. By 2027, the operating revenue of Yangpu's port and shipping industry cluster will reach 80 billion yuan; the province's container throughput will reach 6 million TEUs, and 85 container liner routes will be in stable operation.
(7) Carry out pilot financial reforms. We will promote the expansion of the pilot program for EF accounts and enhance the convenience of cross-border capital flows in the Hainan Free Trade Port. We will actively strive to implement the pilot policy for cross-border asset management, support the clustered development of cross-border capital centralized operation centers, and accelerate the construction of the Hainan Free Trade Port's cross-border capital monitoring platform (Phase II). We will precisely release the policy dividends of the substantive operation recognition policy for SPVs in aircraft and ship leasing, attracting financial leasing and financing leasing companies to operate in Hainan. By 2027, the asset management amount of the modern financial industry cluster in Sanya's Central Business District will approach 600 billion yuan.
(8) Do a good job in "three articles on the return of overseas consumption." We will win the initiative in duty-free shopping, promote the optimization of the off-island duty-free policy, and expand the catalog of "purchase on the spot and take away" commodities. We will enhance the "Study in Hainan" brand, continuously attract high-quality overseas educational resources, build core competitiveness in the "1+3+N" disciplines and majors, and strive to reach 18,000 teachers and students in Lingshui Li'an International Education Innovation Pilot Zone by 2027. We will accelerate the return of overseas medical consumption, continuously promote the in-depth and practical implementation of the pilot work on the application of clinical real-world data, strive to have 2-4 real-world research pilot products approved for domestic listing each year, and strive to introduce no less than 40 international innovative drugs and medical devices each year. By 2027, the number of medical tourists will exceed 1.5 million.
(9) Upgrade the quality of the petrochemical and new materials industry. We will fully leverage the policy dividends of "fixed enterprises, fixed varieties, and fixed quantities" for crude oil imports, promote the mutual supply and circulation of materials upstream and downstream of the industry chain, and accelerate the formation of a complete industry chain from "crude oil head - chemical body - new materials tail." We will expand the olefin industry chain, plan to purchase externally naphtha, propane, and other raw materials to expand the scale of the olefin industry, and develop the high-end chemical and new materials industry in a differentiated manner. We will steadily develop the aromatic hydrocarbon industry chain, extending downstream to special polyesters and biodegradable materials. We will moderately develop special oil products. We will promote the comprehensive utilization of natural gas with high carbon dioxide content and strengthen the natural gas chemical industry chain. By 2027, the output value of the province's petrochemical and new materials industry will exceed RMB 160 billion.
(10) Develop and strengthen green and low-carbon industries. We will accelerate the construction of green factories and green parks to enhance the competitiveness of product carbon footprints. We will support the coordinated transformation of digitalization and greening, actively cultivating national-level green factories and benchmark enterprises for digital transformation. We will promote Lingao to build a full industry chain for new-type buildings encompassing "design - R&D - manufacturing - trading". By 2027, the output value of Lingao's new-type building industry cluster will reach RMB 6 billion. We will support Haikou in cultivating green manufacturing industry clusters in areas such as NEVs, energy conservation and environmental protection, and plastic ban. We will rely on the offshore wind power resources along the western ring of the island to vigorously develop offshore wind power, striving to exceed RMB 12.5 billion in the output value of Changjiang's clean energy industry cluster by 2027, with the installed capacity of clean energy in the province exceeding 87%.
(11) Build an innovation hub for the digital economy. We will promote the transformation of the Haikou Fuxingcheng Digital Economy Industry Cluster and the Hainan Eco-Software Park Digital Economy Industry Cluster towards innovation-driven and application-driven development. We will accelerate the layout of the computing power industry, speed up the cultivation of the data element market, promote the safe and orderly flow of data, and build core competitiveness in digital application scenarios. Based on blockchain, AI, and big data technologies, we will promote the upgrading of digital health, digital entertainment, sharing platforms, and other business formats, and actively layout industries such as game globalization, data processing, semiconductor chips, and integrated circuits. We will promote the integration of digital and real economies by leveraging the digital transformation of enterprises in fields such as petrochemical and new materials, modern biopharmaceuticals, high-end food processing, and equipment manufacturing. By 2027, the operating revenue of the province's core digital economy industries will reach RMB 220 billion.
IV. High-Quality Development Actions for Key Parks
We will strengthen the supporting role of key parks in building a modern industrial system, improve the planning for the "15th Five-Year Plan" of key parks, fully build modern industrial clusters, optimize the management model and investment and financing mechanisms of industrial parks, accelerate the integration of industry and city, strengthen the attraction of major projects, the cultivation of leading enterprises, and the upstream and downstream collaboration of the industry chain, and strive to build our province's key parks into demonstration and leading zones for the high-quality development of the Hainan Free Trade Port.
(12) Cultivate and expand industrial clusters. We will focus on "five directions for strength" to cultivate industrial clusters with distinct characteristics, complete supporting facilities, and strong competitiveness, enhancing the "newness", "greenness", and "value" of industrial clusters. We will focus on supporting the cultivation of industrial clusters in areas such as offshore wind power, energy conservation and environmental protection, low-altitude economy, modern logistics, artificial intelligence, bio-manufacturing, modern fisheries, medical and health care, inspection and testing, and deep processing of tropical foods. By 2027, the driving role and influence of industrial clusters will be further enhanced, with 30 key industrial clusters each exceeding 10 billion yuan cultivated cumulatively.
(13) Innovating Park Investment and Financing Mechanisms. Explore the establishment of provincial-level industrial park investment companies, flexibly utilizing investment, financing, and capital management operations to support the development of key parks in the free trade port. Support qualified key parks in issuing financial products such as real estate investment trust funds or asset-backed securities. Fully leverage the role of special bonds in leveraging social capital, and encourage eligible projects to use special bonds as project capital.
(14) Promoting Integrated Industrial-Urban Development. Support the improvement of production and living infrastructure projects such as the "Five Networks," environmental protection and firefighting facilities, schools, and hospitals. For projects meeting relevant conditions, provincial and municipal finances will provide key support from local government special bonds and other sources. Support multi-channel increases in housing supply to promote job-housing balance. Affordable housing built within key parks can be prioritized for sale to eligible talents.
(15) Strengthening the Investment Attraction Role of "Chain Leaders." Leverage the driving role of major "chain leader" enterprises in key industry chains to promote coordinated development of upstream and downstream enterprises in the industrial chain. Conduct multiple rounds of "business-led investment" and "chain-led investment" activities, form elite investment teams, and establish continuous tracking and engagement mechanisms to precisely attract landmark, leading, and exemplary industrial projects, continuously enhancing the competitiveness of Hainan Free Trade Port's industrial chains. Utilize policies supporting headquarters economic development to actively attract Fortune 500 companies to establish headquarters in key parks.
V. Safeguard Measures
(16) Strengthening Organizational Leadership. Relevant departments and municipalities should enhance organizational leadership, incorporating the construction of a modern industrial system with Hainan characteristics and advantages, as well as the development of parks, into key agendas. Industry authorities should focus on introducing new elements and optimizing existing ones in key industrial chains, vigorously attracting landmark and leading industrial projects to provide stronger support for building a modern industrial system with Hainan characteristics and advantages. Municipalities and parks should elevate their stance, deepen understanding, continuously optimize the business environment, improve factor guarantee mechanisms, and effectively fulfill primary and territorial responsibilities.
(17) Improving Factor Guarantees. Increase fiscal investment in the modern industrial system and leverage the role of the Free Trade Port Construction Investment Fund. Accelerate the construction of a financial service system matching the modern industrial system, encourage an increase in the proportion of manufacturing loans, and vigorously develop a multi-level capital market and industrial insurance. Innovate land supply methods for industrial projects. Strengthen energy and water supply guarantees for enterprises, prioritizing the environmental capacity and energy consumption indicator needs of major industrial projects. We will strengthen the construction of talent aggregation platforms and carriers, comprehensively introduce, cultivate, and effectively utilize talents, and promote Hainan into becoming an island of talent convergence and technological innovation.
(18) Strengthen project support. We will establish a key project database for the modernized industrial system, actively plan, cultivate, and reserve a batch of high-quality projects, and promptly update and include them in the key project database. We will encourage financial institutions to innovate financial products and services that support the construction of key projects in the modernized industrial system. We will establish a mechanism for regular project scheduling, collaborative promotion, and tracking services to ensure that key projects are put into production and yield benefits as soon as possible.
(19) Improve the statistical system. We will explore and establish a statistical monitoring indicator system for the four leading industries, industrial parks across the province, and key industrial clusters, improve the monitoring of key indicators, information sharing, and information release mechanisms, dynamically track and monitor changes in data, and promptly reflect the development of industries in key areas.
(20) Deepen policy empowerment. Focusing on the new opportunities for constructing a modernized industrial system after the implementation of customs clearance operations, we will maximize the leverage effect of free trade port policies on the construction of a modernized industrial system. We will leverage the advantages of integrated institutional innovation to accelerate the implementation of core policies for the Hainan Free Trade Port. We will conduct dynamic assessments of major industrial policies to ensure the security and stability of the industrial chain and supply chain before and after the implementation of customs clearance operations.
