国务院关于《扩大消费“十五五”规划》的批复Reply of the State Council on the "15th Five Year Plan for Expanding Consumption"

Index number: 000014349/2026-00054 Topic category: Commerce, Customs, Tourism \ Other

Issuing authority: State Council Written on: July 2, 2026

Title: Approval of the State Council on the "15th Five Year Plan for Expanding Consumption"

Document number: Guohan [2026] No. 66 Release date: July 13, 2026

Reply of the State Council on the "15th Five Year Plan for Expanding Consumption"

Guohan [2026] No. 66

National Development and Reform Commission, Ministry of Commerce:

We have received your request for submission of the draft of the "15th Five Year Plan for Expanding Consumption" (NDRC Employment [2026] No. 847). The approval is as follows:

1、 We agree in principle with the "15th Five Year Plan for Expanding Consumption" (hereinafter referred to as the "Plan"), please organize and implement it carefully.

3、 The people's governments of all provinces, autonomous regions, and municipalities directly under the central government should regard expanding consumption as an important task for the economic and social development of their respective regions during the "15th Five Year Plan" period, strengthen organizational leadership, clarify work responsibilities, explore effective ways to expand consumption according to local conditions, and implement the goals, tasks, and policy measures proposed in the "Plan" in combination with reality.

4、 The relevant departments of the State Council should refine and improve relevant policies and measures according to their respective responsibilities, and strengthen collaborative support. The important policies, major projects, and key projects involved in the implementation of the Plan shall be submitted for approval according to the procedures. The National Development and Reform Commission and the Ministry of Commerce should strengthen overall coordination and dynamic monitoring and evaluation of the implementation of the Plan. Promptly request and report major issues according to procedures.

Attachment: Expanding Consumption in the 15th Five Year Plan

The State Council

July 2, 2026

(This article has been edited)

Attachment

Expand consumption in the 15th Five Year Plan

In order to continuously expand domestic demand and vigorously boost consumption, this plan is formulated in accordance with the Outline of the 15th Five Year Plan for National Economic and Social Development of the People's Republic of China.

1、 Overall requirements

  Enhance the endogenous power and reliability of the domestic circulation, better leverage the fundamental role of consumption in economic development, and better meet the growing needs of the people for a better life.

By 2030, the overall size of the consumer market will continue to expand, the consumption rate of residents will significantly increase, and the consumption of goods and services in the whole society will grow rapidly. The total retail sales of consumer goods in society will reach about 60 trillion yuan, and the role of consumption in driving economic growth will be further enhanced. The consumption structure has been further optimized, and the proportion of per capita service consumption expenditure to per capita consumption expenditure has steadily increased. Development oriented and improvement oriented consumption continues to grow, and the scale of digital consumption continues to expand. The consumption gap between urban and rural areas, regions, and groups is gradually narrowing. Consumer spending power continues to improve, new progress has been made in high-quality and full employment, residents' income growth is synchronized with economic growth, the social security system is more optimized and sustainable, residents' consumption confidence is stronger, expectations are more stable, and confidence is stronger. Consumer supply has been further optimized, the quality of goods and services continues to improve, the supply system is more complete, the consumer business models and scenarios are more diverse, and the adaptability of supply and demand has been further enhanced. The consumption environment has significantly improved, the standard system and credit system for important products and services have become more sound, the consumption infrastructure has become more complete, and the convenience, comfort, and satisfaction of consumption have greatly increased. Promote further improvement of the consumption system mechanism, achieve positive results in clearing and optimizing unreasonable restrictive measures in the consumption field, expand the long-term mechanism for residents' consumption, further enhance the coordination and linkage between consumption policies and other economic and social policies, and form a higher-level and more dynamic consumption market.

2、 Promote service consumption, improve quality, and benefit the people

（1） Improve the consumption of life services. Implement the action of improving service consumption quality and benefiting the people, and carry out service consumption promotion activities around key areas. Improve the quality of catering services, strengthen the main responsibility of operators for food safety, implement regional catering brand cultivation projects, and encourage local areas to build food gathering areas and specialty snack industry clusters. Promote the high-quality development of the accommodation industry and cultivate a group of distinctive and high-quality hotel and homestay brands. Expand the supply of high-quality domestic services, enhance the skills of domestic service personnel, improve the standard system of domestic services, and cultivate a group of leading enterprises and well-known brands in the field of domestic services.

（2） Expand elderly care consumption. Accelerate the improvement of the three-level elderly care service network in counties and villages, optimize the supply pattern of elderly care services based on home, supported by communities, professionally supported by institutions, and combined with medical care, and improve the care system for disabled and dementia elderly people. Support and encourage social forces to participate in expanding the supply of inclusive elderly care services. Promote high-quality development of the silver economy. Implement the county-level elderly care service improvement plan project. Strengthen technological empowerment and promote the digital upgrading of elderly care services. Support the use of vacant sites to renovate and expand elderly care institutions in accordance with laws, regulations, and needs. Accelerate the recognition of vocational skill levels for skilled personnel in elderly care services and establish a professional qualification system for elderly care service providers.

（3） Support childcare consumption. Accelerate the construction of a universal childcare service system, support the construction of comprehensive childcare service centers, and support the development of various models such as childcare institutions, community embedded childcare, kindergarten daycare, employer run daycare, and family daycare centers. Improve the pricing mechanism for inclusive childcare services. Carry out actions to improve the quality of childcare services and implement projects to enhance the abilities of childcare talents. Expand the supply of parenting products and services to meet diversified and personalized consumption needs.

（4） Develop cultural and tourism consumption. Expand the supply of high-quality culture and tourism consumption, and deepen the integrated development of "cultural tourism+hundred industries" and "hundred industries+cultural tourism". Implement actions to improve the quality and efficiency of public cultural services, and improve convenient measures such as staggered and delayed opening of cultural and museum venues. Optimize the supply of performing arts products and enhance the driving effect of performing arts. Enrich the supply of high-quality film and television works, and improve the quality of online literature and online audiovisual content. Develop new cultural formats, support the development of animation, cultural and creative, intangible cultural heritage brands, and encourage the development of digital art, China-Chic cultural and creative and other cultural products. Promote high-quality tourism development, create boutique routes and high-quality tourist destinations. Enrich characteristic tourism products, cultivate projects such as cruise ships, yachts, RV camping, industrial tourism, and study tours. Develop nighttime cultural and tourism economy, organize lantern fairs, temple fairs, light and shadow shows, water night tours and other activities according to local conditions. Improve the quality of transportation services and open up special tourist trains.

（5） Promote healthy consumption. Deeply implement the special action to promote healthy consumption. Continuously strengthen the professional services and health promotion functions of retail pharmacies, and build a number of "health stations". Optimize the supply of health food and formula food for special medical purposes. Accelerate the construction of rehabilitation hospitals and nursing homes, and support medical and health institutions with conditions to provide integrated medical and elderly care services. Vigorously develop new service formats such as health checkups, health consultations, and health management. Promote the integrated application of new generation information technology and intelligent devices, and promote the development of "Internet plus+health care". Continuously improve the traditional Chinese medicine health service system.

（6） Encourage sports consumption. Promote the development of the sports economy, support places with conditions to hold mass sports events, and create high-quality sports events, professional leagues, and sports brands with independent intellectual property rights that have high visibility. Expand the consumption scenarios of fitness sports, activate vacant venue resources, support the construction of sports facilities around the masses in places with conditions, encourage the construction of sports and health centers in local areas, and promote the opening and sharing of public sports venues. Actively developing the outdoor sports industry and promoting the construction of high-quality outdoor sports destinations. Cultivate and strengthen the ice and snow economy.

（7） Improve the quality of education and training consumption. Promote higher education institutions, research institutions, and social organizations to share high-quality educational resources and meet the diverse and personalized learning needs of the general public. Standardize the development of non disciplinary training in culture, art, technology, sports, etc., and improve licensing conditions. Encourage high-level cooperative education with internationally renowned universities in China. Encourage relevant institutions to carry out vocational skills training guided by marketization and improve the training evaluation mechanism. Orderly development of community colleges, night schools for citizens, and elderly training. Develop new digital educational resources.

3、 Promote the expansion and upgrading of commodity consumption

（8） Promote the consumption of bulk durable goods. Better meet the demand for housing consumption, optimize the supply of affordable housing, implement targeted measures to increase the supply of improved housing, and standardize the development of the housing rental market. Implement the housing quality improvement project, build safe, comfortable, green and smart "good houses", steadily promote the transformation of urban villages, dangerous old houses and old urban communities, support residents' independent renewal, and support the aging adaptation and intelligent upgrading of old houses. Implement actions to improve the quality of property services and expand the content of property services. Expand automobile consumption, promote the innovative development of the entire chain of automobile circulation consumption, promote the circulation of second-hand cars, and expand automobile aftermarket consumption such as automobile modification, leasing, racing, and RV camping. Support the intelligent upgrade of home appliances consumption, develop new generation intelligent terminals, promote the interconnection of smart home devices, and promote the development of single item intelligence towards whole house intelligence.

（9） Steadily increase consumption of lifestyle goods. Promote the consumption of agricultural products, increase the supply of green, organic, high-quality, new and geographical indication agricultural products, and promote the precise connection between production, supply and marketing. Innovate the production of characteristic food products, develop nutritious and healthy leisure food and beverages, health food, special dietary food, and cultivate a group of traditional advantageous food production areas and local characteristic food industries. Implement the National Whole Grain Action Plan. Promote innovation and quality improvement of daily products, support cultural and creative enterprises and manufacturing enterprises to jointly develop high-quality daily necessities that combine practical functions and aesthetic value. Expand textile and clothing consumption and support the development of the textile and clothing industry towards the mid to high end. Strengthen the supply of multifunctional intelligent sports fitness equipment, ice and snow, and outdoor sports equipment products. Support the development of historical classic industries such as arts and crafts, the Four Treasures of the Study, silk, tea, and traditional Chinese medicine. Establish a sound emergency supply system for essential daily necessities and ensure stable supply and prices of basic consumer goods.

（10） Promote technology application and product innovation. Enhance the innovation capability of the consumer goods related industry chain, strengthen applied basic research, cutting-edge technology research and development, and product forward-looking functional research and development, leverage the role of leading enterprises, innovation platforms, and research institutions, and expand the supply of high-quality new consumer goods. Enhance the design level of the consumer goods industry, promote the deep integration of design innovation and digital technology, and promote new models such as crowdsourcing and collaborative design. Promote efficient and responsive manufacturing new models, carry out personalized customization and flexible production, implement the "Thousand Factories, Thousand Faces" transformation plan, and cultivate a number of flexible manufacturing factories.

（11） Strengthen the construction of independent brands. Improve the mechanism for brand cultivation and development, encourage enterprises to establish a brand cultivation management system, and enhance their ability to manage and operate brands throughout their entire lifecycle. Systematically cultivate a matrix of Chinese consumer goods and build a Chinese consumer goods system with enterprise and regional brands as the main body. Strengthen the cultivation and protection of Chinese time-honored brands, domestic brands, and fashionable brands, actively promote the integration of Chinese cultural elements into brand construction, support the development of original intellectual property (IP) brands, promote "IP+consumption", and develop peripheral derivative consumption. Continuously organize the China Brand Day event. Organize the "China Tour of High Quality Foreign Trade Products" event. Enhance the internationalization level of the brand and expand overseas communication channels. Promote the implementation of the "Thousand Sails Going Global" action plan for cultural trade.

4、 Cultivate and create new consumer formats, models, and scenarios

（12） Developing digital consumption. Promote high-quality development of digital consumption, deepen the integration of artificial intelligence and consumption, and implement actions to enhance digital consumption. Expand the consumption of digital products, increase the effective supply of new generation intelligent terminal products such as artificial intelligence smartphones and computers, smart wearables, smart robots, and desktop level 3D printing equipment, accelerate the research and development and interconnection of intelligent security and video care systems, and carry out pilot projects for the admission and road access of intelligent connected vehicles. Enhance digital service consumption, empower life services and scenic areas with technologies such as artificial intelligence and virtual reality, promote the integration of artificial intelligence with education, healthcare, culture, tourism, sports and other fields, and expand the application scenarios of intelligent agents. Innovate digital content consumption, launch more high-quality digital cultural and museum products, strengthen the supply of ultra high definition content for broadcasting, television, and online audio-visual, and develop new forms of film such as virtual reality movies and LED digital cinemas. Expand digital consumption channels, support digital marketing of physical commerce enterprises, guide the standardized and healthy development of instant retail, live streaming e-commerce, etc., and improve the quality e-commerce standard system.

（13） Promote green consumption. Strengthen the production and promotion of green and low-carbon products, enrich the supply of green agricultural products, green home appliances, green building materials, new energy vehicles and other products, and develop green catering, green accommodation, and green housekeeping. Build a green supply chain, improve the certification and labeling system for green products, guide the use of environmentally friendly and biodegradable packaging materials, expand the demand for renewable energy consumption, and promote green procurement. Promote green recycling, improve the recycling system for waste household appliances, furniture and other renewable resources, enhance the operation level of second-hand commodity trading markets and business enterprises, and standardize the development of second-hand commodity trading platforms. Advocate the concept of green consumption, low-carbon lifestyle, and improve the incentive mechanism for green consumption.

（14） Promote the first round economy according to local conditions. Cultivate and build a group of leading enterprises and platform carriers in the first launch economy, support domestic and foreign high-quality product and service brands to open high-level first stores, hold first launch, first show, first exhibition and other activities, optimize relevant approval and filing processes. Create a gathering platform for the first event and strengthen the exhibition's first event function. Accelerate the cultivation of a group of first tier economic professional service institutions. Facilitating the import of newly launched products.

（15） Cultivate experiential consumption. Focusing on consumer experience, cultivate new forms, models, and scenarios of consumption. Promote the deepening of technological application, strengthening creative leadership, and enhancing and expanding consumer experience in retail, culture, tourism, health, sports and other consumer formats. Strengthen the development and transformation of cultural resources, and empower innovation in consumer goods manufacturing and service supply with cultural elements. Support the upgrading of consumption carriers such as key commercial districts and streets to immersive and interactive diverse consumption scenarios, and carry out pilot projects for new consumption formats, models, and scenarios. Actively develop consumer products such as anime, trendy clothing, and toys. Improve the experiential consumer market and industry standard system, and cultivate new industries and sectors. Establish and improve a management mechanism that adapts to new consumer formats, models, and scenarios, implement inclusive and prudent supervision, strengthen intellectual property protection and utilization, and increase the crackdown and punishment on illegal behavior.

（16） Expand inbound consumption. Optimize the inbound consumption environment and create the "Buy in China" brand. Steadily expanding the scope of visa free countries and continuously optimizing transit visa free policies. Further expand international routes, focusing on increasing the number of international direct flights to Europe and the United States, and countries jointly building the "the Belt and Road". Improve the international service level of public places, optimize the payment environment for inbound consumption, and promote the convenience of inbound tourists in handling fast customs clearance, accommodation registration, transportation, telecommunications services, scenic spot reservations, and other affairs. Optimize the facilitation measures for departure tax refunds, increase the number of departure tax refund stores, and actively promote the "buy and refund" service. Encourage more products from multiple countries to be sold in duty-free shops at ports of entry and exit, as well as in duty-free shops within the city. Create consumer brands, cultural landmarks, and experiential activities with high recognition and attractiveness. Cultivate markets for education, healthcare, exhibitions, and other international markets.

5、 Focus on enhancing consumer power

（17） Promote high-quality and full employment. Deeply implement the employment priority strategy and improve the employment promotion mechanism. Actively cultivate new professions and positions, and expand new employment opportunities. Support various business entities to stabilize and expand employment, stabilize and expand employment opportunities for key groups, and optimize the policy environment for promoting entrepreneurship and employment. Continuously carry out large-scale vocational skills improvement training, establish strong public training bases and enterprise training bases. Intensify the implementation of work for relief and expand the scale of labor remuneration distribution. Establish a sound employment support and public service system.

（18） Promote residents' income increase through multiple channels. Establish a sound policy system for allocating resources based on factors, promoting the principle of 'more workers, more skilled workers, and more innovators'. Improve the mechanism for determining, reasonably increasing, and ensuring payment for workers' wages, establish a sound mechanism for adjusting the minimum wage standard, steadily raise the minimum wage standard, and strengthen macro guidance for enterprise wage distribution. Continuously improving the business environment for small and micro enterprises as well as individual businesses. Promote the sustained and healthy development of the real estate market, consolidate the stable and positive development trend of the capital market, and increase the property income of urban and rural residents through multiple channels. Strengthen the redistribution and regulation of taxation, social security, transfer payments, and other areas.

（19） Improve social security policies. Establish a sound mechanism for raising funds and adjusting benefits for basic pension and medical insurance, gradually increase the basic pension for urban and rural residents, and reasonably raise the financial subsidy standards for basic medical insurance for urban and rural residents. Expand the coverage of unemployment and work-related injury insurance, timely and fully distribute unemployment insurance benefits to eligible unemployed individuals, and establish a sound occupational injury protection system. Improve the participation rate of flexible employment personnel, migrant workers, and new forms of employment. Promote long-term care insurance. Establish a sound hierarchical and classified social assistance system, standardize and improve the dynamic adjustment mechanism of the subsistence allowance standards linked to per capita consumption expenditure, and actively develop service-oriented social assistance.

（20） Reasonably increase public consumption. Reasonably increase expenditures on public services such as education, healthcare, and elderly care. Optimize the childcare subsidy system and deepen the demonstration pilot of childcare service subsidies. Implement the action of universal access to basic public health services and carry out the action of improving basic medical services. Implement government procurement policies to support the development of small and medium-sized enterprises.

6、 Vigorously optimize the consumption environment

（21） Improve consumer quality standards. Establish a sound consumer goods and service consumption standard system, promote the revision of standards in key areas, facilitate the integration of domestic and foreign trade certification systems, and improve policies and measures for domestic and foreign trade products with the same line, standard, and quality. Implement the action of improving consumer supply quality, continuously promote the excellent quality engineering of manufacturing industry and the improvement of quality certification for small and micro enterprises, promote the construction of high-quality service certification, and implement product and service quality grading. Develop credit consumption and deepen the "Credit+" project in the consumption field. Establish sound regulations on consumer product recall management. Implement the Measurement for the Benefit of the People Project, closely focus on key areas such as the market and gas stations, and crack down severely on illegal activities such as shortage of weight.

（22） Protecting consumer rights. Diversified solutions for innovative consumer disputes. Continuously smooth and standardize consumer complaint and reporting channels, promote online consumer dispute resolution mechanisms, and develop more offline no reason return units. Innovatively cultivate trustworthy consumer entities, develop basic units such as trustworthy consumer stores and restaurants, and cluster areas such as trustworthy consumer markets, commercial districts, and scenic spots. Standardize business activities such as online sales and live streaming sales. Continuously increase the intensity of price supervision and inspection, seriously investigate and punish illegal behaviors such as not clearly marking prices according to regulations and price fraud, rectify low price dumping and other behaviors in accordance with the law, and advocate for real price and high quality. Strictly crack down on infringement and counterfeiting illegal activities. Implement the rural consumer market purification action. Establish a sound regulatory model for prepaid consumption.

（23） Create a fair and open market environment. Orderly relax restrictions on service industry access and optimize the market access environment for new formats and fields. Strengthen platform responsibilities and protect user rights, promote anti-monopoly and fair competition in the platform economy. We will promote the orderly opening up of telecommunications, the Internet, education, culture, medical care and other fields, and increase the supply of high-quality goods and services. Optimize and improve cross-border e-commerce retail import policies, and expand the import of high-quality overseas goods. Organize high-quality events such as the China International Import Expo and the China International Consumer Goods Expo, and gather high-quality consumer resources from around the world.

（24） Improve the multi-level consumption system. Deepen the cultivation and construction of international consumption center cities, create consumer brands and scenes that lead global consumption trends, and create a globally attractive consumption environment. Carry out the construction of an international consumption environment and support relevant cities to improve their international and convenient service levels. Support the construction of an international tourism consumption center in Hainan. Relying on key urban agglomerations and metropolitan areas, promote differentiated layout of consumption functions and coordinated development of industrial chains between cities. Adapt to population mobility and changes in consumer demand, and stimulate consumption vitality in the sinking market. Strengthen cooperation between urban and rural consumption, open up channels for connecting urban and rural consumption, and promote the integrated development of urban and rural consumption. Implement the action of improving the quality and efficiency of county-level commerce, promote the transformation and upgrading of "thousands of stores", and strengthen the county-level consumer market. Strengthen the implementation of consumer assistance and enhance cooperation between production and sales areas.

（25） Strengthen the construction of consumer infrastructure. Promote a positive interaction between consumption and investment, and expand effective investment in consumer infrastructure. Implement the urban commercial quality improvement action, deepen the pilot of modern commercial circulation system, promote the transformation and upgrading of old commercial blocks, and support the upgrading of offline consumer commercial facilities and equipment. Promote the construction of embedded service facilities, complete communities, and 15 minute convenient living circles in urban communities, and improve community convenient commercial facilities. Promote the construction of national logistics hubs and national backbone cold chain logistics bases, and improve the three-level logistics distribution system in counties, villages, and towns. Strengthen the renovation and upgrading of facilities such as public parking lots, charging facilities, and highway service areas. Carry out the action of strengthening the foundation and revitalizing tourist attractions, and activate existing cultural and tourism facilities. Accelerate the construction of new information infrastructure such as the fifth generation mobile communication (5G), gigabit optical network, and mobile Internet of Things, promote the construction of a national integrated computing power network, and advance the special action of "signal upgrade".

7、 Strengthen efforts to improve and promote the consumption system and mechanism

（26） Clean up and optimize unreasonable restrictive measures. Promote the transformation of automobile and other consumption from purchase management to usage management, and guarantee the purchasing needs of "long lost" car free families by years. Explore the implementation of differentiated vehicle purchase index management in urban and suburban areas. Support various regions to adjust and optimize real estate policies according to urban conditions, in order to better meet the rigid and improved housing needs of residents. Deepen the reform of the housing provident fund system, expand its scope of use, and focus on meeting the diverse housing needs of depositors at different stages. Optimize the approval management of performing arts activities, promote the "one-stop" departmental joint approval and full process online processing for large-scale mass activities, and strictly implement the responsibility system for reviewing the content of tour project premieres.

（27） Establish a sound financial support mechanism. Combine promoting consumption with benefiting people's livelihoods and addressing shortcomings, increase the intensity of inclusive policies that directly reach consumers, and increase government funds for livelihood security expenditures. We will coordinate the use of central budget investment, local government special bonds and other funding channels to support the construction of consumer infrastructure that meets the conditions. Make good use of the special funds for promoting domestic demand through fiscal and financial coordination, and better leverage the role of policy funds. Support financial institutions to expand credit allocation in the consumer sector and increase credit support for business entities in the consumer sector. Optimize the implementation of individual consumption loans and service industry operating entity loan interest subsidy policies. Encourage insurance institutions to develop relevant insurance products and services to meet the protection needs of key consumer areas.

（28） Implement the system of rest and vacation. Fully implement the Labor Law and effectively safeguard the legitimate rights and interests of workers to rest and vacation. Promote the revision of the Regulations on Paid Annual Leave for Employees, strictly implement the system of paid leave for employees, and enhance the rigidity of system implementation. Encourage units and employees to combine paid annual leave with traditional festivals and local characteristic activities, and arrange flexible staggered leave. Support the promotion of spring and autumn leave for primary and secondary schools in areas with conditions.

8、 Organize and implement

Persist in implementing the leadership of the Party in all aspects of the process of expanding consumption work. Each region and department should implement the goals, tasks, and policy measures proposed in this plan based on actual conditions. Strengthen comprehensive consumption statistics, optimize the statistical monitoring of service consumption, new forms and models of consumption. The National Development and Reform Commission and the Ministry of Commerce should strengthen overall coordination and do a good job in monitoring and evaluating the implementation of planning. Promptly request and report major issues according to procedures.