Effectively Transforming the Institutional Advantages of the Party’s Leadership over Economic Work into Governance Effectiveness – A Perspective Based on the Five-Year Plan

Development is the foundation and key to solving all of China’s problems. Upholding the Party’s leadership is an important historical experience from the CPC’s century of struggle. The Fourth Plenary Session of the 20th Party Central Committee [1]1 The Fourth Plenary Session of the 20th Central Committee of the Communist Party of China, held in July 2024, focused on comprehensively deepening reform and advancing Chinese modernization. listed “upholding the Party’s overall leadership” as the first of six principles that must be followed for economic and social development during the 15th Five-Year Plan period [2]2 The 15th Five-Year Plan (2026-2030) is the next medium-term plan for China’s national economic and social development.. Institutions are fundamental, overarching, stable, and long-term issues concerning the development of the Party and the state. Since the 18th National Congress of the CPC [3]3 The 18th National Congress of the CPC, held in 2012, marked the beginning of the New Era under Xi Jinping’s leadership., the Party’s leadership system in the economic field, which “commands the overall situation and coordinates all parties,” has become increasingly mature and finalized. Whether the institutional advantages of the Party’s leadership can be transformed into high governance effectiveness concerns whether the advantages of the system of socialism with Chinese characteristics can be fully demonstrated. To continuously enhance the momentum and vitality of socialist modernization under the current complex situation and to promote high-quality development of China’s economy, it is necessary to strengthen the construction of the Party’s leadership system and its implementation capacity, and to effectively transform the institutional advantages of the Party’s leadership over economic work into governance effectiveness. The five-year plan is an important means of promoting stable and long-term economic and social development in China and is the “key” to understanding the “China Miracle.” This article will analyze the Party’s leadership system and leadership effectiveness from the perspective of the “five-year plan.”

发展是解决我国一切问题的基础和关键。坚持党的领导是中国共产党百年奋斗的重要历史经验，党的二十届四中全会将“坚持党的全面领导”列为“十五五”时期经济社会发展必须遵循的六大原则之首。制度是关系党和国家事业发展的根本性、全局性、稳定性、长期性问题。党的十八大以来，党在经济工作领域“总揽全局、协调各方”的领导制度体系不断成熟定型。党的领导制度优势能否转化为高治理效能关乎中国特色社会主义制度优势能否得到充分彰显。为在当前复杂形势下不断增强社会主义现代化建设的动力和活力、推动我国经济高质量发展，必须加强党的领导制度及其执行力建设，切实把党领导经济工作的制度优势转化为治理效能。五年规划是推动实现我国经济社会行稳致远的重要手段，是理解“中国奇迹”的“钥匙”。本文将基于“五年规划”这一视角，对党的领导制度与领导效能展开分析。

I. The Institutional Advantages of the Party’s Leadership over Economic Work Still Urgently Need to Be Transformed into Governance Effectiveness

一、党领导经济工作的制度优势仍亟待向治理效能转化

Since the 18th National Congress of the CPC, socialism with Chinese characteristics has entered a New Era. In economic construction, we have adhered to the general principle of pursuing progress while ensuring stability, fully, accurately, and comprehensively implemented the new development philosophy, accelerated the construction of a new development pattern, and solidly promoted changes in the quality, efficiency, and drivers of economic development. China’s economic development has achieved historic accomplishments, and “the balance, coordination, and sustainability of China’s economic development have been significantly enhanced, and the economy has embarked on a path of development that is higher quality, more efficient, fairer, more sustainable, and more secure.” [4]4 Quotation from the Resolution of the Central Committee of the Communist Party of China on the Major Achievements and Historical Experience of the Party’s Century-Long Struggle (2021).

党的十八大以来，中国特色社会主义进入新时代。在经济建设上，我们坚持稳中求进工作总基调，完整准确全面贯彻新发展理念，加快构建新发展格局，扎实推动经济发展质量变革、效率变革、动力变革，我国经济发展取得历史性成就，“我国经济发展平衡性、协调性、可持续性明显增强，经济迈上更高质量、更有效率、更加公平、更可持续、更为安全的发展之路”。

The construction of the institutional system is a fundamental, overarching, stable, and long-term issue concerning the development of the Party and the state. The historic achievements in China’s economic development since the New Era depend on the institutional guarantees and governance support of socialism with Chinese characteristics. Undoubtedly, the Party’s leadership system and the transformation of its governance effectiveness are the key. “Party politics is an institutionalized, standardized, and proceduralized political behavior,” and “China’s national system and national governance system are highly consistent with the political logic inherent in the Party’s political construction.” [5]5 Internal academic references, not attributed to a specific public document. Among Party, government, military, civilian, and academic institutions, and in all regions of the country, the Party leads everything. The Party’s leadership system is the fundamental leadership system of our country and holds a commanding position within the system of socialism with Chinese characteristics. Economic construction is the Party’s central task. The Party’s leadership profoundly influences and even determines China’s economic governance system and governance capacity, representing “the significant advantage of upholding the Party’s centralized and unified leadership, upholding the Party’s scientific theory, maintaining political stability, and ensuring that the country always advances in the direction of socialism.” [6]6 Quotation from the Resolution on the Major Achievements and Historical Experience of the Party’s Century-Long Struggle (2021). Over the course of a century of struggle, especially since entering the New Era of socialism with Chinese characteristics, our Party has continuously consolidated the foundation of the leadership system and explored scientific and effective measures to transform the Party’s leadership system into governance effectiveness. The advantages of the Party’s leadership system have been continuously demonstrated. The level of institutionalization and standardization with which the Party Central Committee formulates major policies and strategies, makes major decisions, and deploys major tasks has been continuously improved. The implementation mechanisms for major decisions and deployments of the Party Central Committee have been continuously perfected. The systems and mechanisms for local Party committees at all levels to implement the Party’s line, principles, and policies and to provide correct leadership over economic construction in their regions have also been continuously strengthened. In short, the Party’s leadership system in the economic field, which “commands the overall situation and coordinates all parties,” has become more complete, more mature, and more finalized, providing a fundamental political guarantee for the high-quality development of China’s economy.

制度体系构建是关系党和国家事业发展的根本性、全局性、稳定性、长期性问题。新时代以来我国经济发展取得的历史性成就有赖于中国特色社会主义制度保证与治理支撑，毋庸置疑，党的领导制度及其治理效能转化是其中的关键。“政党政治是一种制度化、规范化、程序化的政治行为”，“我国国家制度和国家治理体系与党的政治建设内含的政治逻辑高度一致”，党政军民学、东西南北中，党是领导一切的。党的领导制度是我国的根本领导制度，在中国特色社会主义制度体系中具有统领地位。经济建设是党的中心工作。党的领导深刻影响甚至决定着我国经济治理体系和治理能力，“坚持党的集中统一领导，坚持党的科学理论，保持政治稳定，确保国家始终沿着社会主义方向前进的显著优势”。在百年奋斗历程中，特别是迈入中国特色社会主义新时代以来，我们党不断夯实领导制度基础、探索把党的领导制度转化为治理效能的科学有效举措，党的领导制度优势不断彰显。党中央制定重大方针和重大战略、作出重大决策、部署重大任务的制度化规范化水平不断提高，党中央重大决策部署落实机制不断完善，各级地方党委贯彻党的路线方针政策、对本地区经济建设实行正确领导的体制机制也不断健全。总之，党在经济工作领域“总揽全局、协调各方”的领导制度体系更加完备、更加成熟、更加定型，为我国经济高质量发展提供了根本政治保证。

However, we must also clearly recognize that “the adverse effects brought about by changes in the external environment have deepened, and China’s economic operation still faces many difficulties and challenges.” [7]7 Quotation from the Central Economic Work Conference (2024) or similar recent official assessment. The foundation for China’s sustained economic recovery and improvement still urgently needs to be further consolidated. Especially under the current situation, difficulties in areas such as boosting domestic consumer demand, improving investment efficiency, developing new quality productive forces according to local conditions, and the orderly combination and effective transmission of macro-control policies all urgently need to be addressed. This indicates that the effectiveness of China’s economic governance still needs to be improved, and the modernization level of China’s economic governance system and governance capacity still urgently needs to be raised. Problems are the cause of governance. Economic development and operation always have problems that evolve dynamically, which means that economic governance activities cannot stagnate. The institutional conditions behind them and the mechanism by which institutions are transformed into governance naturally become the focus of ongoing attention in both practice and theory. This is clearly a systematic project: “Upholding and improving the system of socialism with Chinese characteristics and advancing the modernization of the national governance system and governance capacity is a major strategic task for the entire Party. It must be carried out under the unified leadership of the Party Central Committee, with scientific planning, careful organization, and a combination of long-term and short-term goals, advancing as a whole.” [8]8 Quotation from the Decision of the Fourth Plenary Session of the 19th Central Committee (2019) on upholding and improving the system of socialism with Chinese characteristics. Handling China’s affairs well depends on the Party. Facing the current challenges in China’s economic governance, on the one hand, we must uphold and improve the Party’s leadership systems and mechanisms over economic work. As General Secretary Xi Jinping emphasized, “The system of socialism with Chinese characteristics is distinctive and efficient, but it is not yet perfect, mature, or finalized.” [9]9 Xi Jinping, speech at the 13th collective study session of the Politburo (2014) or similar context. The academic community is also very concerned about this, with views such as: “Although the main framework of the Party’s leadership system has been basically formed, problems and shortcomings such as imperfect systems and mechanisms and uncoordinated institutional connections still exist”; [10]10 Academic citation, not attributed to a specific named source. “Because the utility of institutions follows a law of diminishing returns, institutions need to be continuously improved and perfected to maintain the sustainability of institutional advantages”; [11]11 Academic citation, not attributed to a specific named source. “By enhancing the targetedness and effectiveness of reform and innovation in key institutional units, achieving the overall optimization of the Party’s leadership system… allowing the Party’s institutional system to permeate the internal structure of society as a value, principle, and norm, becoming the inner spirit and normative system of China’s economic, political, and social life,” [12]12 Academic citation, not attributed to a specific named source. and so on. On the other hand, governance is key. Governance effectiveness is the result of institutional implementation and operation. High-efficiency governance can truly demonstrate institutional advantages and enhance institutional confidence. The core essence of transforming the institutional advantages of the Party’s leadership into governance effectiveness lies in achieving the organic unity of the Party’s leadership and national governance. Exploring the paths and methods for “embedding” the Party’s leadership system over economic work into the process of economic governance and development should become a focus for both practical departments and theoretical circles. By comparing institutional construction and institutional implementation in practice, it can be found that problems with the latter are more prominent. Issues such as institutional failure, institutional vacancy, institutional idling, and implementation distortion still exist to varying degrees in many governance fields. In response, General Secretary Xi Jinping emphasized: “The problem of having rules to follow has been basically solved; the next focus is on strictly enforcing the rules.” [13]13 Xi Jinping, instruction on intra-Party regulations enforcement (c. 2019). Some scholars have also proposed “a deep understanding that the implementation of intra-Party regulations has become an obvious shortcoming in the construction of the intra-Party regulations system in the New Era” [14]14 Academic citation, not attributed to a specific named source. and that “the Party has initially constructed an implementation mechanism for implementing the Party’s overall leadership system.” [15]15 Academic citation, not attributed to a specific named source. To truly fasten the “cage” of institutional norms, make institutions a hard constraint, and resolutely prevent institutions from becoming “scarecrows” or “rubber bands,” we must effectively transform the institutional advantages of the Party’s leadership over economic work into governance effectiveness and continuously improve the quality of China’s economic operation. Based on the above analysis, this article will focus on a specialized discussion of the “implementation” process (mechanisms, principles, methods, etc.) of the Party’s leadership system. Of course, this does not mean the article favors a “dichotomy” between institutions and governance, i.e., discussing governance without reference to institutions, because governance cannot be separated from institutional support. Governance and institutions are “two wings of one body.” In practical operation and theoretical research, we should adhere to coordinating institutions and governance. Furthermore, the reason this article focuses on the governance effectiveness of the Party’s leadership system is also based on the following additional considerations:

然而，我们也要清醒地看到，“当前外部环境变化带来的不利影响加深，我国经济运行仍面临不少困难和挑战”，我国经济持续回升向好的基础仍亟待进一步稳固。尤其在当前形势下，提振国内消费需求、提高投资效益、因地制宜发展新质生产力、宏观调控政策的有序组合与有效传导等领域的困难都亟待破题，这就说明我国经济治理效能还有待提升，我国经济治理体系和治理能力的现代化水平仍亟待提高。问题是治理的导因，经济发展运行始终存在问题且在动态演化，这就意味着经济治理活动不能停滞，其背后的制度条件以及制度转化为治理的机理自然就成为实践与理论持续关注的重点，而这显然是一项系统工程，“坚持和完善中国特色社会主义制度、推进国家治理体系和治理能力现代化，是全党的一项重大战略任务。必须在党中央统一领导下进行，科学谋划、精心组织，远近结合、整体推进”。办好中国的事情，关键在党。面对当前我国经济治理难题，一方面要坚持和完善党对经济工作的领导体制机制。正如习近平总书记所强调的“中国特色社会主义制度是特色鲜明、富有效率的，但还不是尽善尽美、成熟定型的”，学界对此也十分关切，如“党的领导制度体系的主体框架虽然已经基本形成，但体制机制不健全、制度衔接不协调等问题和短板依然存在”，“由于制度效用存在递减规律，因而制度需要不断健全、完善，以保持制度优势的持续性”，“通过增强关键性制度单元改革创新的针对性和有效性，实现党的领导制度体系的整体优化，……，让党的制度体系作为一种价值、原则和规范渗透到社会机体内部，成为中国经济政治社会生活的内在精神与规范体系”，等等。另一方面，治理是关键。治理效能是制度执行与运行的结果，高效能治理才能真正彰显制度优势、增强制度自信。党的领导制度优势向治理效能转化的核心要义在于实现党的领导与国家治理有机统一，探索将党对经济工作的领导制度“嵌入”经济治理与发展过程的路径与方法应成为实践部门和理论界关注的重点。通过比较实践中的制度建设与制度执行，可以发现，后者存在的问题较为突出，诸如制度失灵、制度空置、制度空转、执行变形等问题在诸多治理领域仍不同程度地存在，对此，习近平总书记强调指出：“有规可依的问题基本得到解决，下一步的重点是执规必严”，有学者也提出要“深刻认识党内法规执行已经成为新时代党内法规制度建设的一个明显短板”，“党初步建构了贯彻党的全面领导制度的执行机制”。要真正扎牢制度规范的“笼子”，使制度成为硬约束，坚决防止制度成为“稻草人”“橡皮筋”，切实把党领导经济工作的制度优势转化为治理效能，不断提升我国经济运行质量。据上述分析，本文将重点对党的领导制度的“执行”过程（机制、机理及方法等）展开专门讨论，当然，这并不意味着本文偏向制度与治理“二分法”，即撇开制度谈治理，因为治理离不开制度支撑，治理与制度是“一体两翼”，在实践操作与理论研究中，应坚持统筹好制度与治理。进一步看，本文之所以重点关注党的领导制度的治理效能，还基于以下更多的考虑：

First, fundamentally, institutional advantages are not only manifested in formal codification and completeness, but also need to be “verified” and tested through governance effectiveness. That is to say, institutions are not the “endpoint”; governance is the “last mile” for realizing institutional effects. The vitality of institutions lies in their implementation, and governance is the “practical” form of institutions. Governance activities centered around “systematic governance, law-based governance, comprehensive governance, and source governance” [16]16 “Systematic governance, law-based governance, comprehensive governance, and source governance” is a formulation from the CPC’s governance theory, emphasizing a multi-dimensional approach to governance. contain extremely rich practical content, thus also possessing broad space for exploration and expansion, requiring specialized research. More importantly, the practical process and effects of governance carried out in accordance with institutions can, to a certain extent, serve in turn as a basis for evaluating the quality of institutions. Institutional optimization is a dynamic process of the synergistic enhancement of institutional advantages and governance effectiveness.

其一，从根本上讲，制度优势不仅表现为形式上的定型与完备，更需要通过治理效能来“证实”和检验，也就是说，制度并非“终点”，治理才是实现制度效应的“最后一公里”。制度的生命力在于执行，治理是制度的“实践”形式，围绕“系统治理、依法治理、综合治理、源头治理”开展的治理活动具有极其丰富的现实内容，从而也具有广阔的探索拓展空间，需要开展专门研究。更为重要的是，通过依循制度开展治理的实践过程及其效果在一定程度上可以反过来作为评价制度优劣的依据。制度优化是制度优势与治理效能协同提升的动态过程。

Second, from a practical perspective, the governance effectiveness of the same institution often varies; it is not uncommon for good institutions to be unimplemented or ineffectively implemented. This stems from differences in various subjective and objective factors (such as differences in the consciousness and behavior of governance subjects, governance environment and conditions, etc.) during the process of institutional implementation. Therefore, it is extremely necessary to study and examine the process, mechanisms, and environmental conditions of the release of governance effectiveness. In-depth analysis and exploration of “institutional implementation” have relatively independent and considerable practical and theoretical value.

其二，从实践看，同一制度的治理效能往往表现不一，好的制度未被执行或未被有效执行的情况并不少见，这源于制度执行过程中各种主客观因素（如治理主体意识与行为、治理环境与条件等方面）的差异。因此，针对治理效能释放过程、机理及其环境条件等进行研究审视极为必要，深入分析探索“制度执行”具有相对独立且十分可观的实践与理论价值。

Third, from the dialectical relationship between institutions and governance, institutional design itself must consider its future implementation status and effectiveness. This is an inevitable measure to enhance institutional adaptability. That is to say, the process of institutional construction must assess its future governance effectiveness. The expectation of future governance effectiveness has become a prerequisite or basis for institutional construction, and governance effectiveness has become an intrinsic component of institutional construction. This further demonstrates the importance of enhancing governance effectiveness relative to institutional construction. Institutional “designers” should possess the perspective of “implementers” and cannot adopt a “dichotomous” attitude toward institutions and governance. Only by deeply studying and incorporating implementation issues into the design process of the Party’s leadership institutions, and consistently advancing the formulation and implementation of institutions as an integrated whole, can the Party’s leadership institutions be ensured to be practical and feasible.

其三，从制度与治理的辩证关系看，制度设计本身就要考虑其未来执行的状况与成效，这是提升制度适应性的必然举措，也就是说，制度建设过程就要评估其未来的治理效能，未来的治理效能预期已成为制度建设的前提或依据，治理效能已成为制度建设的内在构成部分，这进一步体现了治理效能提升相较于制度建设而言的重要性。制度“设计者”应具备“执行者”的视野而不能采取制度与治理“二分”态度，只有深入研究并将执行问题纳入党的领导制度设计过程中，始终坚持制度的制定和实施一体推进，才能确保党的领导制度切实可行。

Fourth, facing the people’s aspirations for a better life and the complex domestic and international economic environment, China’s economic governance system, governance capacity, and economic operation status have attracted much attention. “Unlike other countries, the driving force of China’s economic development, in addition to the dual mechanisms of government and market, includes the extremely important factor of the ruling party, which possesses the characteristics of an ‘encompassing organization’.” [17]17 The quotation is from a Chinese academic source, likely referring to the CPC’s role as an encompassing organization that integrates interests beyond market and state. The Communist Party of China has always adhered to taking economic construction as its central task. How to fully leverage the institutional advantages of the Party’s leadership over economic work and effectively transform the institutional advantages of the Party’s leadership over economic work into economic governance effectiveness has become increasingly urgent and highly anticipated. Accordingly, conducting a systematic analysis of the implementation capacity of the Party’s leadership institutions over economic work is of great significance, as this is the decisive factor determining the overall effectiveness of socialist economic governance with Chinese characteristics. It must be emphasized that research on the implementation capacity and implementation process of the Party’s leadership institutions over economic work often involves numerous economic governance subjects (such as the People’s Congress, government, Chinese People’s Political Consultative Conference, enterprises, and social organizations), because the Party’s leadership is realized through “exercising overall leadership and coordinating the efforts of all sides.” [18]18 “Exercising overall leadership and coordinating the efforts of all sides” is a standard CPC formulation describing the Party’s leadership role in the state system.

其四，面对人民群众对美好生活的期盼以及复杂的国内外经济环境，我国经济治理体系与治理能力及经济运行状况备受关注。“与其他国家不同，中国经济发展的动力除了政府与市场的双重机制之外，具有‘共容性组织’特征的执政党因素是极其重要的”，中国共产党始终坚持以经济建设为中心，如何充分发挥党的经济工作领导制度优势、切实把党领导经济工作的制度优势转化为经济治理效能已日益迫切且非常值得期待。据此，开展关于党对经济工作的领导制度执行力的系统分析具有重要意义，因为这是决定中国特色社会主义经济治理整体效能的决定性因素。需要强调的是，关于党对经济工作的领导制度执行力与执行过程研究往往涉及众多经济治理主体（如人大、政府、政协、企业及社会组织等），因为党的领导是通过“总揽全局、协调各方”来实现的。

II. The Five-Year Plan is a Governance System with Chinese Characteristics that Fully Leverages the Institutional Advantages of the Party’s Leadership

二、五年规划是充分发挥党的领导制度优势的中国特色治理体系

Through long-term practice, the Five-Year Plan has become increasingly mature. It both conforms to the needs of reform and promotes the deepening of reform. It has developed into a complete governance system and framework that “maximally” utilizes and implements the socialist system with Chinese characteristics, especially the Party’s leadership institutions, and coordinates the advancement of economic and social development. It is an important “hub” for enhancing the effectiveness of the Party’s leadership. It is necessary to clarify that, through long-term practice since the First Five-Year Plan, the Five-Year Plan has continuously developed and improved, now covering all aspects of national governance. Considering that “in leading the socialist cause, the Communist Party of China must adhere to taking economic construction as its central task, and all other work must submit to and serve this central task,” [19]19 This is a quotation from the Constitution of the Communist Party of China, General Program. this article defines the Five-Year Plan as an “economic governance system” in many expressions, or rather, this article mainly studies the economic governance component within the Five-Year Plan. The Party’s leadership institutions are the logical prerequisite for the formulation and implementation of the Five-Year Plan. At the same time, the effectiveness of the plan’s implementation also needs to be guaranteed by the Party’s leadership institutions. That is to say, the “full cycle” of the Five-Year Plan is permeated with and embodies the principles and logic of the Party’s leadership. Accordingly, the relationship between the Party’s leadership institutions and the Five-Year Plan manifests as a two-way interactive relationship between institutions and governance. In terms of attributes, the Five-Year Plan is a unique economic governance system with Chinese characteristics, fully demonstrating the strong national governance capacity under the Party’s leadership. The Five-Year Plan is an important domain of China’s party politics. As the implementation and application of the Party’s leadership institutions, it possesses extremely rich connotations and broad extensions, containing profound logic and requirements of the Party’s leadership and leadership institutions, and bearing the important mission of transforming the institutional advantages of the Party’s leadership over economic work into governance effectiveness. As General Secretary Xi Jinping emphasized at a symposium on economic and social development during the “15th Five-Year Plan” period for some provinces, autonomous regions, and municipalities, scientifically formulating and successively implementing the Five-Year Plan is an important experience of our Party in governing the country and also an important political advantage of socialism with Chinese characteristics. [20]20 This refers to a symposium held by Xi Jinping in 2025 on the “15th Five-Year Plan” (2026-2030). The specific analysis is as follows:

经过长期实践，五年规划日臻成熟，既顺应改革需要又推动改革深化，已发展成为“最大化”运用和践行中国特色社会主义制度体系尤其是党的领导制度、统筹推进经济社会发展的一套完整的治理体系与框架，是提升党的领导效能的重要“枢纽”。有必要说明的是，经过“一五”计划以来的长期实践，五年规划不断发展完善，现已覆盖国家治理的方方面面，考虑到“中国共产党在领导社会主义事业中，必须坚持以经济建设为中心，其他各项工作都服从和服务于这个中心”，本文在多处表述中将五年规划界定为“经济治理体系”，或者说本文主要研究五年规划中的经济治理部分。党的领导制度是五年规划得以编制形成并实施落地的逻辑前提，同时，规划实施效果也需要党的领导制度予以保障。也就是说，五年规划“全周期”均贯穿并体现着党的领导的原则与逻辑。据此，党的领导制度与五年规划两者之间表现为制度与治理之间的双向交互关系。从属性上看，五年规划是独具中国特色的经济治理体系，充分彰显了党领导下强大的国家治理能力。五年规划是我国政党政治的重要领域，作为党的领导制度的执行与运用，它具有极其丰富的内涵和宽广的外延，蕴含着深刻的党的领导及领导制度逻辑与要求，承载着把党对经济工作的领导制度优势转化为治理效能的重要使命，正如习近平总书记在部分省区市“十五五”时期经济社会发展座谈会上所强调的，科学制定和接续实施五年规划，是我们党治国理政一条重要经验，也是中国特色社会主义一个重要政治优势。具体分析如下：

First, from the perspective of the formulation process, the Five-Year Plan is a comprehensive application of the Party’s leadership institution of “exercising overall leadership and coordinating the efforts of all sides.” It centrally embodies the implementation process and implementation capacity of the Party’s leadership institutions, profoundly reflects the coordinated order and efficient operation of Party-government relations and Party-mass relations, and is a practical model for implementing the Party’s leadership institutions over economic work. Taking the national Five-Year Plan (program) as an example, since the implementation of the First Five-Year Plan, our Party has, through long-term practice, gradually explored and formed a procedural rule: under the unified leadership of the Party Central Committee, the Party Central Committee proposes planning suggestions, the State Council compiles the planning outline, and the National People’s Congress deliberates and approves it before it is announced to the public for implementation. This procedure clearly reflects the practical process and specific forms of Party-government relations during the formulation of the Five-Year Plan, and is also the objective realization form of Party-government relations in the formulation of the Five-Year Plan. Party-government relations are the core and key of the Party’s comprehensive leadership institutions and are also the central issue of contemporary China’s national governance. At the same time, our Party also fully mobilizes the enthusiasm of the people to participate in the formulation of the plan. Close Party-mass relations have played a positive role in the formulation of the Five-Year Plan. The formulation of China’s “14th Five-Year Plan” once carried out an online opinion solicitation activity. From May 20 to June 20, 2025, the formulation of the “15th Five-Year Plan” carried out an online opinion solicitation activity, receiving a total of over 3.113 million suggestions from netizens, providing useful references for the formulation of the “15th Five-Year Plan.” General Secretary Xi Jinping made an important instruction on studying and absorbing netizens’ opinions and suggestions on the formulation of the “15th Five-Year Plan,” emphasizing: “The broad masses of the people actively offered suggestions and put forward many valuable opinions and suggestions. Relevant departments should carefully study and absorb them.” [21]21 This instruction was issued in 2025 during the online opinion solicitation for the “15th Five-Year Plan.” Party-mass relations also fall within the scope of the Party’s leadership institutions, because from the perspective of the relational fields they regulate, the system of the Party’s leadership institutions involves intra-Party relations, Party-government relations, and Party-mass relations. From the above analysis, it can be seen that the formulation process of the Five-Year Plan itself is an application of the Party’s leadership institutions, a process of fully leveraging the institutional advantages of the Party’s leadership, and a process of transforming the institutional advantages of the Party’s leadership over economic work (the Five-Year Plan involves all aspects of economic and social development, including rich macroeconomic policy content, so the formulation process of the Five-Year Plan is a typical macroeconomic governance activity) into governance effectiveness.

其一，从编制过程看，五年规划是对党“总揽全局、协调各方”的领导制度的全面运用，集中体现了党的领导制度的执行过程与执行能力，深刻反映了党政关系、党群关系的协调有序与运转高效，是贯彻落实党对经济工作的领导制度的实践典范。以国家五年规划（计划）为例，自实施第一个五年计划以来，我们党在长期实践中，逐渐探索形成了在党中央集中统一领导下，由党中央提出规划建议、国务院编制规划纲要、全国人大审议通过后向社会公布实施的规则程序。这一程序清晰地反映了五年规划编制过程中党政关系的实践过程与具体形态，也是党政关系在五年规划编制中的客观实现形式，而党政关系又是党的全面领导制度的内核与关键，也是当代中国国家治理的中心议题。与此同时，我们党还充分发挥人民群众参与规划编制的积极性，密切的党群关系在五年规划编制中发挥了积极作用。我国“十四五”规划编制工作就曾开展网上意见征求活动。2025年5月20日至6月20日，“十五五”规划编制工作开展网络征求意见活动，累计收到网民建言超过311.3万条，为编制“十五五”规划提供了有益参考。习近平总书记就研究吸收网民对“十五五”规划编制工作意见建议作出重要指示强调：“广大人民群众积极建言献策，提出了许多有价值的意见建议，有关部门要认真研究吸纳。”党群关系也属于党的领导制度范畴，因为从调整的关系领域来看，党的领导制度体系涉及党内关系、党政关系和党群关系。由上分析可知，五年规划的编制过程本身就是对党的领导制度的运用，是充分发挥党的领导制度优势的过程，是把党领导经济工作（五年规划涉及经济和社会发展方方面面，包括丰富的宏观经济政策内容，所以，五年规划编制过程就属于典型的宏观经济治理活动）的制度优势转化为治理效能的过程。

Second, from the perspective of framework and content, the Five-Year Plan is the “framework diagram” and “roadmap” for China’s economic and social development under the Party’s leadership. It serves as an important bridge for transforming the Party’s propositions into the will of the state, and constitutes a systematic design for the process of transforming the institutional advantages of the Party’s leadership over economic work into governance effectiveness. It provides a scientific path for enhancing the Party’s leadership effectiveness. That is to say, the Party’s comprehensive leadership over economic work is implemented and realized through the Five-Year Plan. The Five-Year Plan covers many fields, primarily economic governance. Each specific governance field involves diversified governance subjects under the Party’s leadership, including the executive, legislative, judicial, and market actors. The Five-Year Plan “embeds” and implements the Party’s leadership system of “exercising overall leadership and coordinating the efforts of all sides” [22]22 “Exercising overall leadership and coordinating the efforts of all sides” (总揽全局、协调各方) is a standard formulation describing the Party’s core leadership role in the political system. into all aspects of economic and social development, providing broad space for the operation and application of the Party’s leadership system over economic work. Only under the Party’s leadership, forming a joint governance force from all sides, can the Five-Year Plan be smoothly implemented. The Five-Year Plan is a systematic governance project for the economy and society under the Party’s leadership.

其二，从框架及内容看，五年规划是在党领导下我国经济社会发展的“框架图”“路线图”，是将党的主张转化为国家意志的重要桥梁，是对党领导经济工作的制度优势向治理效能转化过程的系统设计，为提升党的领导效能提供了科学路径，也就是说，党对经济工作的全面领导是通过五年规划得到贯彻落实的。五年规划涵盖以经济治理为主的诸多领域，各具体治理领域均涉及党领导下的行政、立法、司法、市场等多元化治理主体，五年规划将党“总揽全局、协调各方”的领导制度“嵌入”和落实到经济社会发展的方方面面，为党对经济工作的领导制度的运转应用提供了广阔空间。只有在党的领导下形成各方治理合力，五年规划才能得以顺利实施，五年规划是党领导下的经济社会系统治理工程。

Third, from the implementation perspective, the implementation guarantee system of the Five-Year Plan fully utilizes and demonstrates the institutional advantages of the Party’s leadership, providing clear expectations for the realization of the plan’s goals. Based on long-term practical exploration of the successive implementation of Five-Year Plans, we have continuously enriched and improved the implementation guarantee mechanisms, further effectively transforming the institutional advantages of the Party’s leadership over economic work into governance effectiveness. The institutional dividends of the Party’s leadership are thereby more fully released. For example, the “14th Five-Year Plan” Outline [23]23 The “14th Five-Year Plan” Outline refers to the official plan for 2021-2025, formally titled the “Outline of the 14th Five-Year Plan for National Economic and Social Development and the Long-Range Objectives Through the Year 2035.” clearly states the need to “integrate Party leadership throughout all areas and the entire process of plan implementation, ensuring the implementation of major decisions and deployments of the Party Central Committee.” This is specifically reflected in aspects such as “fully leveraging the leading and guaranteeing role of comprehensive and strict governance of the Party, integrating the improvement of the Party and state supervision systems into plan implementation. Improving the organizational system that is connected from top to bottom and effective in execution, enhancing the political capabilities and professional levels of leading bodies and cadres at all levels in grasping reform, promoting development, and maintaining stability in adapting to the new requirements of the New Era.” At the same time, through long-term practice, the Five-Year Plan has gradually established and improved mechanisms for defining relevant responsibilities, monitoring and evaluation, policy guarantees, and assessment and supervision during implementation. This further creatively transforms and refines the Party’s leadership system into a series of specific implementation measures, enabling the Party’s leadership system over economic work to be comprehensively and strictly embodied within the framework of the Five-Year Plan.

其三，从执行层面看，五年规划的实施保障体系充分运用并彰显了党的领导制度优势，为规划目标的实现提供了明确预期。基于接续实施五年规划的长期实践探索，我们不断丰富完善实施保障机制，进一步切实把党领导经济工作的制度优势转化为治理效能，党的领导的制度红利由此得到更充分释放，比如“十四五”规划《纲要》明确提出要“把党的领导贯穿到规划实施的各领域和全过程，确保党中央重大决策部署贯彻落实”，具体体现在“充分发挥全面从严治党引领保障作用，把完善党和国家监督体系融入规划实施之中。完善上下贯通、执行有力的组织体系，提高各级领导班子和干部适应新时代新要求抓改革、促发展、保稳定的政治能力和专业化水平”等方面。同时，五年规划在长期实践中还逐步建立健全了实施中的相关责任界定、监测评估、政策保障、考核监督等机制，从而进一步将党的领导制度创造性转化并细化为一系列具体的实施举措，使党对经济工作的领导制度在五年规划框架中得到全面的、严格的体现。

The above sections have specifically analyzed and described the process, mechanisms, and functions of the Five-Year Plan in realizing the effectiveness of the Party’s leadership, from multiple links and levels including formulation, content, and implementation. It can be found that, through long-term strategic practice, the Five-Year Plan has become increasingly mature. It coordinates institutional orientation with problem orientation, closely and orderly linking the Party’s leadership system with the governance of economic issues. It plans a rich and challenging governance “field” for the application of the Party’s leadership system, identifies the Party’s leadership as an important governance support for solving economic difficulties, and achieves a corresponding combination of the Party’s leadership system and economic issues. Thus, it becomes the “Chinese solution” for enhancing the effectiveness of the Party’s leadership over economic work. Furthermore, because the Five-Year Plan must be approved by the People’s Congress [24]24 The People’s Congress (人民代表大会) refers to the National People’s Congress (NPC), China’s top legislative body, whose approval is constitutionally required for major national plans. before implementation can commence, the Five-Year Plan can also be understood as a “mandatory” statutory method for transforming the institutional advantages of the Party’s leadership into governance effectiveness. This further helps ensure the certainty and effectiveness of its implementation, thereby significantly enhancing the Party’s economic governance effectiveness.

以上分别从编制、内容及执行等多个环节与层面具体分析和描述了五年规划在实现党的领导效能上的过程、机理与作用，从中可以发现，经过长期战略实践，五年规划已日臻成熟，它统筹制度导向与问题导向，将党的领导制度与经济问题治理紧密有序地衔接联系起来，为党的领导制度运用规划了丰富的、具有挑战性的治理“场域”，为破解经济难题找到了党的领导这个重要治理支撑，实现了党的领导制度与经济问题的对应组合，由此而成为提升党的经济工作领导效能的“中国方案”。进而言之，由于五年规划必须经人大审批才能启动实施，因此，五年规划还可以被理解为将党的领导制度优势转化为治理效能的“强制性”法定方式，这又将有助于保证其实施的确定性和有效性，进而显著提升党的经济治理效能。

It is particularly important to emphasize that the Five-Year Plan also contains a series of scientific and specific economic governance methods. Governance methods enhance governance capacity and efficiency, making the Five-Year Plan, a comprehensive economic governance system with a uniquely Chinese characteristic paradigm, more operational and effective, and making the transformation of the institutional advantages of the Party’s leadership into governance effectiveness smoother. The Fourth Plenary Session of the 19th Central Committee [25]25 The Fourth Plenary Session of the 19th Central Committee was held in October 2019 and focused on the theme of upholding and improving the socialist system with Chinese characteristics and modernizing the national governance system and capacity. put forward the overall requirements for upholding and improving the system of socialism with Chinese characteristics and advancing the modernization of the national governance system and governance capacity. These include “strengthening systematic governance, law-based governance, comprehensive governance, and source governance, to better transform China’s institutional advantages into national governance effectiveness.” Systematic governance, law-based governance, comprehensive governance, and source governance (hereinafter referred to as the “Four Governance Approaches”) are not only governance methods suited to China’s national conditions, but also a scientific summary and generalization of the Party’s century-long successful governance practice, and a comprehensive and full utilization of the institutional advantages of the Party’s leadership. The framework, content, and implementation guarantee measures of the Five-Year Plan fully embody the adherence to and comprehensive application of the requirements of the “Four Governance Approaches,” thus also becoming the implementation carrier of the “Four Governance Approaches.” The widespread application of the “Four Governance Approaches” is an important sign of the increasing maturity of the Five-Year Plan. It should be noted that the application of the “Four Governance Approaches” in the Five-Year Plan shows differences in distribution. Some are applied in broad governance fields and multiple links, while others are reflected in local governance fields and partial links. That is to say, the functions of the “Four Governance Approaches” differ and are in a state of dynamic change. For example, the field of law-based governance has shown a trend of continuous expansion with the development of practice.

尤其要强调的是，五年规划中还蕴含着一系列科学、具体的经济治理方法。治理方法提升了治理能力与效率，使得五年规划这个独具中国特色范式的综合经济治理体系更具操作性和有效性，使党的领导制度优势向治理效能转化更加顺畅。党的十九届四中全会提出了坚持和完善中国特色社会主义制度、推进国家治理体系和治理能力现代化的总体要求，其中就包括“加强系统治理、依法治理、综合治理、源头治理，把我国制度优势更好转化为国家治理效能”。系统治理、依法治理、综合治理、源头治理（以下简称“四个治理”）既是符合中国国情的治理方法，更是对党的百年成功治理实践的科学归纳总结，还是对党的领导制度优势的全面充分利用。五年规划的框架、内容及实施保障举措全面体现了对“四个治理”要求的遵循和综合运用，因此也成为“四个治理”的实现载体。广泛运用“四个治理”是五年规划日益走向成熟的重要标志。需要说明的是，“四个治理”的运用在五年规划中呈现分布上的差异，有的运用于广泛的治理领域和诸多环节，有的体现在局部治理领域和部分环节，也就是说，“四个治理”功能各异，且处在动态变化之中，比如依法治理的领域随着实践的发展已呈现不断拓宽的趋势。

Among them, systematic governance requires the formation of a pluralistic co-governance pattern with Chinese characteristics, featuring Party committee leadership, government responsibility, democratic consultation, social coordination, public participation, rule-of-law guarantees, and technological support. The Five-Year Plan adheres to the requirements of systematic governance, emphasizing “mainly clarifying national strategic intentions, defining the focus of government work, and guiding and regulating the behavior of market entities.” For example, in the “14th Five-Year Plan” Outline, the statement “persist in focusing the development of the economy on the real economy, accelerate the construction of a manufacturing powerhouse and a quality powerhouse, promote the deep integration of advanced manufacturing and modern service industries, strengthen the leading role of infrastructure support, and build a modern industrial system with coordinated development of the real economy, technological innovation, modern finance, and human resources” is a scientific strategic decision made by our Party with the “Two Overall Situations” [26]26 “Two Overall Situations” (两个大局) refers to the overall situation of the great rejuvenation of the Chinese nation and the overall situation of changes unseen in a century in the world. in mind. Looking further, items such as “implementing major technical equipment research projects, improving incentive and risk compensation mechanisms, promoting the demonstration application of first (set) equipment, first batch of materials, and first version of software,” “promoting the increase of capacity and efficiency of industrial land use, promoting new industrial land use models,” “optimizing the layout of regional industrial chains, guiding key links of industrial chains to remain domestically, strengthening the capacity building of the central, western, and northeastern regions to undertake industrial transfers,” and “standardizing and reducing logistics fees such as port shipping, road and railway transportation, comprehensively cleaning up and standardizing fees related to enterprises” all define the focus of government work. Meanwhile, statements such as “relying on leading enterprises in the industry, increasing efforts to tackle key technologies for important products and core technologies, accelerating engineering and industrialization breakthroughs” put forward requirements for market entities. These are all concrete manifestations of transforming the Party’s propositions into the will of the state and the actions of the entire people. Thus, they effectively achieve a high degree of unity and self-consistency among adhering to the Party’s comprehensive leadership, the decisive role of the market in resource allocation, and the better role of the government. This also means that the Party’s leadership and long-term governance can fundamentally break the dual dilemma of “government failure” and “market failure.” It not only demonstrates the significant advantage of the socialist system with Chinese characteristics in “concentrating resources to accomplish major tasks,” but also showcases the institutional advantages of the socialist market economy system with Chinese characteristics. The national Five-Year Plan achieves an organic combination of “vitality” and “synergy,” just as “the 13 Five-Year Plans that have been implemented have had two impacts on China’s economic and social development. … Second, the degree of organization of China’s economic and social development has significantly improved.”

其中，系统治理要求形成党委领导、政府负责、民主协商、社会协同、公众参与、法治保障、科技支撑的具有中国特色的多元共治格局。五年规划坚持系统治理要求，强调“主要阐明国家战略意图，明确政府工作重点，引导规范市场主体行为”，比如“十四五”规划《纲要》中“坚持把发展经济的着力点放在实体经济上，加快推进制造强国、质量强国建设，促进先进制造业和现代服务业深度融合，强化基础设施支撑引领作用，构建实体经济、科技创新、现代金融、人力资源协同发展的现代产业体系”就是我们党胸怀“两个大局”而做出的科学战略决策，进一步看，诸如“实施重大技术装备攻关工程，完善激励和风险补偿机制，推动首台（套）装备、首批次材料、首版次软件示范应用”“推动工业用地提容增效，推广新型产业用地模式”“优化区域产业链布局，引导产业链关键环节留在国内，强化中西部和东北地区承接产业转移能力建设”“规范和降低港口航运、公路铁路运输等物流收费，全面清理规范涉企收费”等均明确了政府工作重点，而“依托行业龙头企业，加大重要产品和关键核心技术攻关力度，加快工程化产业化突破”等则对市场主体提出了要求，这些都是把党的主张转化为国家意志和全民行动的具体体现，由此便有效地实现了坚持党的全面领导、市场在资源配置中的决定性作用以及政府更好发挥作用的高度统一与自洽，这同时也意味着党的领导和长期执政可从根本上破除“政府失灵”和“市场失灵”的双重困境，既彰显了中国特色社会主义制度“集中力量办大事”的显著优势，又展现了中国特色社会主义市场经济体制优势，国家五年规划实现了“活力”与“合力”的有机结合，正如“业已实施的13个五年规划，对中国经济社会发展产生了两方面的影响。……第二，中国经济社会发展的组织化程度显著提高”。

Law-based governance clearly emphasizes that economic governance requires legal basis, legal support, and legal safeguards, and that all entities participating in economic governance must possess rule-of-law thinking and rule-of-law awareness, with their conduct conforming to the norms and requirements of the rule of law. Through long-term practice, law-based governance has been deeply integrated into the Five-Year Plan. For example, successive Five-Year Plans have emphasized during the drafting stage “the procedural rules for public release and implementation after review and approval by the National People’s Congress.” [27]27 The National People’s Congress (NPC) is China’s highest state authority; its Standing Committee exercises legislative power when the NPC is not in session. In addition, requirements for law-based governance are frequently found in the content of the Five-Year Plan. For instance, the 13th Five-Year Plan proposed “deepening reforms in the intellectual property field and strengthening judicial protection of intellectual property”; the 14th Five-Year Plan required “legally protecting entrepreneurs’ property rights and innovation gains, and enabling entrepreneurs to play an important role in grasping innovation directions, pooling talent, and raising funds,” and “submitting mid-term evaluations and summary evaluations to the Standing Committee of the Political Bureau of the CPC Central Committee for deliberation in accordance with procedures, and legally reporting the implementation of the plan to the Standing Committee of the National People’s Congress, consciously accepting the supervision of the People’s Congress,” among other provisions. [28]28 The Standing Committee of the Political Bureau of the CPC Central Committee is the Party’s top leadership body. The Outline of the 14th Five-Year Plan also focused on law-based governance by proposing a more systematic and long-term vision: “Adhere to the principle of formulating plans according to law and implementing plans according to law, codify the regulations, requirements, and effective experiences of the Party Central Committee and the State Council on unified planning system construction and national development planning into legal form, accelerate the enactment of the Development Planning Law, and strengthen the legal safeguards for planning formulation and implementation.” This aims to legalize the specific operational methods of the Party’s leadership system embedded in the Five-Year Plan, making the transformation of the Party’s institutional advantages in leading economic work into governance effectiveness more certain and stable.

依法治理就是明确强调经济治理需要有法律根据、法律支撑、法律保障，以及参与经济治理的各个主体都要有法治思维、法治意识，其行为都要符合法治的规范与要求。经历长期实践，依法治理已深度融入五年规划，比如，历次五年规划在编制阶段都强调“全国人大审议通过后向社会公布实施的规则程序”。另外，从五年规划内容中也经常可见依法治理要求，如“十三五”规划提出“深化知识产权领域改革，强化知识产权司法保护”，“十四五”规划要求“依法保护企业家的财产权和创新收益，发挥企业家在把握创新方向、凝聚人才、筹措资金等方面重要作用”“中期评估和总结评估情况按程序提请中央政治局常委会审议，并依法向全国人民代表大会常务委员会报告规划实施情况，自觉接受人大监督”，等等。“十四五”规划《纲要》还聚焦依法治理提出了更加系统长远的展望，“坚持依法制定规划、依法实施规划的原则，将党中央、国务院关于统一规划体系建设和国家发展规划的规定、要求和行之有效的经验做法以法律形式固定下来，加快出台发展规划法，强化规划编制实施的法治保障”的要求，旨在将五年规划中蕴含着的党的领导制度的具体运行方式法治化，使党对经济工作的领导制度优势向治理效能的转化更具确定性和稳定性。

Comprehensive governance emphasizes the integrated use of means other than law for economic governance. With the improvement and refinement of the socialist market economy with Chinese characteristics, in practice the Five-Year Plan has gradually begun to focus on employing comprehensive governance methods to stimulate the motivation of market entities for high-quality development. Among these, economic incentive measures play an increasingly important role in effectively guiding the behavior of market entities. For example, the Outline of the 14th Five-Year Plan requires “establishing and improving evaluation systems and incentive mechanisms that conform to scientific laws, implementing long-cycle evaluations for basic research exploration, and creating a favorable scientific research ecology conducive to basic research”; “implementing more vigorous universal policies such as additional deductions for R&D expenses and tax incentives for high-tech enterprises”; and “improving talent evaluation and incentive mechanisms, refining the science and technology talent evaluation system oriented toward innovation capability, quality, practical results, and contribution, and constructing a revenue distribution mechanism that fully reflects the value of innovation elements such as knowledge and technology,” among other provisions.

综合治理则强调要综合运用法律以外的其他手段来进行经济治理。随着中国特色市场经济体制的健全完善，在实践中，五年规划逐渐开始注重运用综合治理手段来激发市场主体的高质量发展动机，其中，经济激励手段在有效引导市场主体行为上发挥着日益重要的作用，比如“十四五”规划《纲要》要求“建立健全符合科学规律的评价体系和激励机制，对基础研究探索实行长周期评价，创造有利于基础研究的良好科研生态”“实施更大力度的研发费用加计扣除、高新技术企业税收优惠等普惠性政策”“完善人才评价和激励机制，健全以创新能力、质量、实效、贡献为导向的科技人才评价体系，构建充分体现知识、技术等创新要素价值的收益分配机制”，等等。

Source governance clarifies the order of governance methods, emphasizing addressing both symptoms and root causes, with a focus on treating the root causes. “Treating the root causes” stresses thoroughly solving problems by eliminating their origins, rather than merely alleviating symptoms, while also focusing on establishing normative constraint mechanisms to prevent problems from recurring. Successive Five-Year Plans have placed great importance on exploring source governance methods. The concept of source governance has run through the outlines of the Five-Year Plans and their implementation processes, thereby further enhancing planning execution capacity and more effectively helping to improve the effectiveness of Party leadership. For example, the 13th Five-Year Plan emphasized “improving competition policy, perfecting market competition rules, and implementing a fair competition review system”; the 14th Five-Year Plan required “improving the new nationwide system under the conditions of the socialist market economy, tackling key core technology battles, and enhancing the overall efficiency of the innovation chain.” These planning contents and requirements are all committed to finding causes and solving problems at a deep level.

而源头治理则明确了治理方式的次序，即强调标本兼治、重在治本。“治本”强调通过消除根源以彻底解决问题，而非缓解表象，同时，注重建立规范约束机制，防止问题反复出现。历次五年规划均十分重视探索源头治理方法，源头治理理念已贯穿五年规划纲要及其执行过程，由此进一步提升了规划执行能力，更加切实地助力提升了党的领导效能，比如，“十三五”规划强调的“健全竞争政策，完善市场竞争规则，实施公平竞争审查制度”，“十四五”规划要求“健全社会主义市场经济条件下新型举国体制，打好关键核心技术攻坚战，提高创新链整体效能”等等，这些规划内容与要求都致力于从深层次寻找原因、破解难题。

In summary, the essence and core of the Five-Year Plan lie in its being a uniquely Chinese national governance system (the Party’s leadership system, governance methods, etc.), while its external manifestation or extension covers governance content spanning the Five-Sphere Integrated Plan (such as governance goals, major projects, macro policies, etc.). The core and extension together constitute China’s national governance capacity. Practice has fully proven that, as the basic method of the Party’s leadership over economic work, a governance system with Chinese characteristics for the economy, a systematic action plan for enhancing the effectiveness of Party leadership, an important vehicle for “China’s governance,” and a methodological system for economic governance, the Five-Year Plan’s formulation procedures, framework content, and implementation guarantee systems have all matured day by day. It comprehensively demonstrates the institutional advantages and governance effectiveness of the socialist system with Chinese characteristics under the Party’s leadership in “concentrating resources to accomplish major tasks,” and is a major concentrated embodiment of the advantages of the socialist system with Chinese characteristics.

综上，五年规划的实质与内核就在于它是独具中国特色的国家治理体系（党的领导制度、治理方法等），其外在表现或者外延则是覆盖“五位一体”的治理内容（如治理目标、重大项目、宏观政策等），内核与外延组合起来构成了我国国家治理能力。实践充分证明，作为党领导经济工作的基本方式、中国特色的经济治理体系、提升党的领导效能的系统性行动方案、“中国之治”的重要载体以及经济治理方法论体系，五年规划编制程序、框架内容及其执行保障体系等均已日臻成熟，它全面展示了党领导下的“集中力量办大事”的中国特色社会主义制度优势和治理效能，是中国特色社会主义制度体系优势的重要集中体现。

The Five-Year Plan has been continuously developed and improved by the Communist Party of China through long-term governance practice. Therefore, the Five-Year Plan, as a uniquely Chinese governance system and governance model, should be viewed from a developmental perspective. As China’s development stage evolves, the domestic and international development environment changes, and new contradictions and problems emerge in governance, each successive Five-Year Plan will face new and complex circumstances. These all place higher demands on national planning. How to scientifically and effectively “embed” the Party’s leadership system over economic work and deeply apply it throughout the “full cycle” of the Five-Year Plan, and in this process make timely decisions and innovate governance methods, still needs to be scientifically answered in the practice of successively implementing the 15th Five-Year Plan. Adhering to fundamental principles while breaking new ground, and improving and perfecting national planning, are inherent requirements of governing the country in the New Era. In short, the scientific formulation and successive implementation of the 15th Five-Year Plan should be guided by the goal of effectively transforming the institutional advantages of the Party’s leadership over economic work into governance effectiveness, providing political guarantees for promoting effective qualitative improvement and reasonable quantitative growth of the economy during the 15th Five-Year Plan period.

五年规划是中国共产党在长期的治理实践中不断发展完善起来的，所以，应以发展的眼光看待五年规划这个独具中国特色的治理体系与治理模式。随着我国发展阶段的演变、国内外发展环境的变化和治理中新矛盾新问题的竞相出现，每一个接续实施的五年规划都会面临新的复杂环境，这些都对国家规划提出了更高要求，如何将党对经济工作的领导制度科学有效“嵌入”并深度运用于五年规划的“全周期”，并在此过程中相机抉择、创新治理方法，仍需在接续实施“十五五”规划的实践中予以科学回答，坚持守正创新、健全完善国家规划是新时代治国理政的内在要求。总之，要以切实把党领导经济工作的制度优势转化为治理效能为目标导向来科学编制和接续实施“十五五”规划，为“十五五”时期推动经济实现质的有效提升和量的合理增长提供政治保证。

III. Scientifically Formulating and Successively Implementing the 15th Five-Year Plan, Effectively Transforming the Institutional Advantages of the Party’s Leadership over Economic Work into Governance Effectiveness

三、科学编制和接续实施“十五五”规划，切实把党领导经济工作的制度优势转化为治理效能

(1) High-Quality Completion of the Formulation Work for the 15th Five-Year Plan

（一）高质量做好“十五五”规划编制工作

Scientific formulation of the Five-Year Plan is a systematic development and application of the institutional advantages of the Party’s leadership over economic work. General Secretary Xi Jinping emphasized: “Formulating medium- and long-term plans to guide economic and social development is an important way for our Party to govern the country.” [29]29 Xi Jinping, “Explanatory Notes on the ‘Recommendations of the Central Committee of the Communist Party of China on Formulating the 14th Five-Year Plan for National Economic and Social Development and the Long-Range Objectives for 2035’,” 2020. “The 15th Five-Year Plan period is a critical period for consolidating the foundation and making comprehensive efforts to basically achieve socialist modernization.” [30]30 This is a standard formulation used in official documents to describe the strategic importance of the 15th Five-Year Plan period (2026–2030) for achieving the 2035 goals of basic socialist modernization. The 15th Five-Year Plan is an important governance tool for fully, accurately, and comprehensively implementing the new development concept, accelerating the construction of a new development pattern, and solidly promoting high-quality development. It is directly related to the improvement of the modernization level of China’s economic governance capacity. To formulate the 15th Five-Year Plan with high quality, efforts must be made in grasping the general trend, adhering to the stance, anchoring key points, and highlighting characteristics.

科学制定五年规划是对党的经济工作领导制度优势的系统开发运用。习近平总书记强调：“制定中长期规划指导经济社会发展，是我们党治国理政的一种重要方式”。“‘十五五’时期是基本实现社会主义现代化夯实基础、全面发力的关键时期”。“十五五”规划是完整准确全面贯彻新发展理念、加快构建新发展格局、扎实推动高质量发展的重要治理工具，直接关系我国经济治理能力现代化水平提升。为高质量编制“十五五”规划，必须在把握大势、坚守立场、锚定重点、彰显特色上下功夫。

First, it is necessary to comprehensively grasp the phased requirements of the 15th Five-Year Plan period and the impact of changes in the international situation on China. This is the basic prerequisite for scientifically formulating the 15th Five-Year Plan. “China’s development environment during the 15th Five-Year Plan period faces profound and complex changes.” [31]31 This is a standard assessment found in Party documents, reflecting the view that the period is marked by heightened uncertainty and complexity. It is necessary to scientifically grasp the historical position of China’s development and the environment it faces, bearing in mind the “two overall situations” [32]32 “Two overall situations” (两个大局) refers to the domestic situation of the great rejuvenation of the Chinese nation and the international situation of changes unseen in a century. to plan medium- and long-term plans and major strategies. Against the backdrop of the accelerated evolution and deep interaction of the “two overall situations,” it is necessary to accurately grasp and actively adapt to the development context and correct direction of the world, plan the economic and social development of the 15th Five-Year Plan period with a broader international perspective, stronger historical initiative, and strategic initiative, formulate a major-country strategic system that matches China’s status and development needs, build a national strategic capacity to offset the uncertainty of drastic changes in the external environment with the certainty of high-quality development, enhance China’s position in major economic diplomacy and participation in global governance, and make China’s development a “stabilizing anchor” for the world economy in a period of turbulent change.

一是要统筹把握“十五五”时期的阶段性要求和国际形势发展变化对我国的影响。这是科学制定“十五五”规划的基本前提。“‘十五五’时期我国发展环境面临深刻复杂变化”，要科学把握我国发展所处历史方位和所面临环境，胸怀“两个大局”谋划中长期规划和重大战略。要在“两个大局”加速演进并深度互动的时代背景下，准确把握并主动适应世界发展脉络和正确走向，以更加开阔的国际视野、更强的历史主动和战略主动谋划“十五五”时期经济社会发展，编制符合中国地位和发展需要的大国战略体系，打造以高质量发展的确定性对冲外部环境急剧变化的不确定性的国家战略能力，提升中国在重大经济外交和参与全球治理的地位，使中国发展成为动荡变革期世界经济的“稳定锚”。

Second, we must adhere to the people-centered fundamental value orientation. This is the core essence and value goal of China’s high-quality development during the “15th Five-Year Plan” period, and it is also the basic principle for scientifically formulating the “15th Five-Year Plan,” helping to achieve a deep integration of the scientific nature and people-centeredness of the “15th Five-Year Plan.” Common prosperity is the essential requirement of socialism with Chinese characteristics and also a long-term historical process. From the First Five-Year Plan to the 14th Five-Year Plan, the consistent theme has been to build China into a modern socialist country. During the “15th Five-Year Plan” period, we must adhere to doing our best according to our capabilities, “insisting on closely combining improving people’s livelihoods with promoting consumption, and investing in things with investing in people,” focusing on promoting coordinated regional development, consolidating and expanding the achievements of poverty alleviation, advancing comprehensive rural revitalization and integrated urban-rural development, and accelerating agricultural and rural modernization, researching and introducing a batch of livelihood policy measures with strong balance and accessibility, and striving to solve the pressing, difficult, and anxious problems of the masses. Moreover, adhering to the people-centered value orientation also implies a persistent practice of whole-process people’s democracy. During the planning process, we must unify top-level design with seeking advice from the people, extensively and deeply observe people’s conditions, listen to people’s voices, and gather people’s wisdom through multiple methods and channels, promoting the democratization and scientification of decision-making, and continuously enhancing the scientific nature and operability of the “15th Five-Year Plan.”

二是要坚持以人民为中心的根本价值取向。这是“十五五”时期我国高质量发展的核心要义与价值旨归，也是科学制定“十五五”规划的基本原则，有助于实现“十五五”规划科学性和人民性的深度融合。共同富裕是中国特色社会主义的本质要求，也是一个长期的历史过程。从第一个五年计划到第十四个五年规划，一以贯之的主题是把我国建设成为社会主义现代化国家。“十五五”时期，要坚持尽力而为、量力而行，“坚持惠民生和促消费、投资于物和投资于人紧密结合”，重点在促进区域协调发展、巩固拓展脱贫攻坚成果、推进乡村全面振兴与城乡融合发展以及加快农业农村现代化等方面研究推出一批均衡性可及性强的民生政策举措，着力解决群众急难愁盼问题。不仅如此，坚持以人民为中心的价值取向还蕴含着对全过程人民民主的执着践行，要在规划编制过程中，把顶层设计和问计于民统一起来，多方式多渠道广泛深入地察民情、听民声、汇民智，推动实现决策民主化、科学化，不断增强“十五五”规划的科学性和可操作性。

Third, we must place the development of new quality productive forces according to local conditions in a more prominent strategic position. This is the strategic support for China’s high-quality development during the “15th Five-Year Plan” period and also the strategic fulcrum for scientifically formulating the “15th Five-Year Plan.” Developing new quality productive forces is the intrinsic requirement and key focus for promoting high-quality development, and it is a strategic choice to break through “bottleneck” technologies and “weak link” areas, seize the initiative in future development, and shape new advantages in international competition. All localities must strengthen research and exploration, deepen understanding of the laws governing scientific and technological innovation, industrial innovation, innovation in development modes, innovation in systems and mechanisms, and innovation in talent work mechanisms. Through the formulation of national and regional “15th Five-Year Plans,” they should plan new types of relations of production compatible with the development of new quality productive forces, clarify the focus of government work, guide and regulate the behavior of market entities, jointly promote the leap in laborers, means of labor, objects of labor, and their optimized combination, and strive to forge innovative breakthrough paths according to local conditions, truly breaking away from traditional economic growth models and paths of productive forces development.

三是要把因地制宜发展新质生产力摆在更加突出的战略位置。这是“十五五”时期我国高质量发展的战略支撑，也是科学制定“十五五”规划的战略支点。发展新质生产力是推动高质量发展的内在要求和重要着力点，是突破“卡脖子”技术和“掉链子”环节、掌握未来发展主动权和塑造国际竞争新优势的战略选择。各地要加强研究探索，深化对科技创新、产业创新、发展方式创新、体制机制创新以及人才工作机制创新等的规律性认识，通过国家及区域“十五五”规划的编制，谋划与发展新质生产力相适应的新型生产关系，明确政府工作重点，引导规范市场主体行为，共同推动实现劳动者、劳动资料、劳动对象及其优化组合的跃升，因地制宜奋力开拓创新破局之路，真正摆脱传统经济增长方式、生产力发展路径。

Fourth, we must reflect regional characteristics on the basis of improving the unified planning system. This is an inherent requirement for coordinating the systematic and scientific nature of the “15th Five-Year Plan” and also an objective requirement for the formulation of medium- and long-term plans in a large country. We must strengthen overall awareness and systematic thinking, fully implement General Secretary Xi Jinping’s requirement to “reasonably determine goals and tasks and propose ideas and measures for each field one by one,” adhere to “optimizing the layout of the regional economy and promoting coordinated regional development,” and accelerate the planning of a national planning system led by the national development plan, based on spatial planning, supported by special plans and regional plans, and jointly composed of national, provincial, city, and county-level plans, placing all types of plans on “one map.” At the same time, plans of various regions must be precisely positioned within the overall national situation, focus on reflecting their own characteristics and leveraging comparative advantages, prevent disorderly development and “involution” competition, and on the basis of the specialized and differentiated planning formulation of each region, comprehensively improve the scientific level of China’s “15th Five-Year Plan” formulation.

四是要在健全统一规划体系的基础上体现区域特色。这是统筹实现“十五五”规划系统性与科学性的内在要求，也是大国中长期规划编制的客观要求。要强化全局意识和系统观念，全面落实习近平总书记提出的“一个领域一个领域合理确定目标任务、提出思路举措”要求，坚持“优化区域经济布局，促进区域协调发展”，加快谋划以国家发展规划为统领，以空间规划为基础，以专项规划、区域规划为支撑，由国家、省、市县级规划共同组成国家规划体系，把各类规划落在“一张图”上。与此同时，各地区规划要做到在全国大局中精准定位，注重体现自身特色、发挥比较优势，防止无序发展、“内卷”竞争，在各地区特色化、差异化规划编制基础上总体提升我国“十五五”规划制定的科学化水平。

(II) Continuously Implementing the “15th Five-Year Plan”

（二）接续实施好“十五五”规划

As mentioned earlier, the five-year plan is a governance method with “mandatory” characteristics that transforms the institutional advantages of the Party’s leadership into governance effectiveness. This implies the certainty of the implementation and execution of the five-year plan and thus the effective transformation of the institutional advantages of the Party’s leadership over economic work into governance effectiveness. However, history tells us that the efficiency and effectiveness of the implementation of the five-year plan will face various uncertainties. During the “15th Five-Year Plan” period, China’s development environment faces profound and complex changes, and

前已述及，五年规划是将党的领导制度优势转化为治理效能的具有“强制性”特征的治理方式，这意味着五年规划执行与实施的确定性进而党领导经济工作的制度优势向治理效能有效转化的必然性。然而，历史告诉我们，五年规划的实施效率与效果均会面临各种不确定性影响，“十五五”时期我国发展环境面临深刻复杂变化，我国发展处于战略机遇和风险挑战并存、不确定难预料因素增多的时期，“学术界在充分肯定中国编制与实施五年规划成就与经验的同时，对其中的教训也有诸多总结，认识逐渐深入”。为接续实施好“十五五”规划，有必要重点关注以下若干方面：

1. Further Improve the Implementation Mechanism of the 15th Five-Year Plan

1. 进一步完善“十五五”规划实施机制

It is necessary to strengthen the Party’s comprehensive leadership over plan implementation. This is the fundamental guarantee for the continued successful implementation of the 15th Five-Year Plan. The specific governance tasks within the plan cannot be separated from the Party’s leadership, and the advancement of plan implementation likewise cannot be separated from the Party’s leadership. The key is to strengthen the Party’s leadership over the entire process of plan implementation. First, it is necessary to strengthen the Party Central Committee’s leadership over major work in the plan, strengthen the functional role of the Party Central Committee’s decision-making and deliberation coordination organs, and closely integrate the implementation process and requirements of the 15th Five-Year Plan to further improve the rigorous system in which the Party’s central, local, and grassroots organizations are connected from top to bottom and have strong execution, and improve the mechanism for implementing the Party Central Committee’s major decisions and deployments. Second, it is necessary to further improve the Party’s comprehensive leadership around plan implementation, and improve the work systems of Party committees (leading Party groups) at all levels, ensuring that the Party plays a leading role in various organizations such as the People’s Congress, government, People’s Political Consultative Conference, and enterprises, fully playing the role of “coordinating all parties” [33]33 “Coordinating all parties” (协调各方) is a standard formulation in CPC documents describing the Party’s role in harmonizing the work of state organs, social organizations, and other entities under its leadership., cultivating and forming a joint force for plan execution in areas such as implementing plan implementation responsibilities, monitoring and evaluation, and policy support, preventing and overcoming departmental interest tendencies, and ensuring consistency of action. Third, focus on the key and difficult points in plan execution to improve the Party’s governance capacity and leadership level, especially adhere to a problem-oriented approach, grasp key links to improve decision-making mechanisms, and strengthen investigation and research, scientific demonstration, and risk assessment of major decisions. Fourth, it is necessary to adhere to the Party’s organizational line for the New Era, fully utilize the monitoring and evaluation results of plan implementation to strengthen cadre assessment, and further scientifically and accurately select and appoint capable persons.

要加强党对规划实施的全面领导。这是接续实施好“十五五”规划的根本保证。规划中各具体治理工作离不开党的领导，规划的实施推进也同样离不开党的领导，关键是要加强党对规划实施全过程的领导。一是要强化党中央对规划中重大工作的领导，强化党中央决策议事协调机构职能作用，并紧密结合“十五五”规划实施过程与要求进一步健全完善党的中央组织、地方组织、基层组织上下贯通、执行有力的严密体系，完善推动党中央重大决策部署落实机制。二是要围绕规划实施进一步健全党的全面领导，并健全各级党委（党组）工作制度，确保党在人大、政府、政协、企业等各种组织中发挥领导作用，充分发挥“协调各方”作用，在落实规划实施责任、监测评价、政策支持等方面培育形成规划执行合力，防止和克服部门利益倾向，确保行动一致性。三是聚焦规划执行中的重点难点提高党的执政能力和领导水平，尤其要坚持问题导向、抓住关键环节健全决策机制，加强重大决策的调查研究、科学论证、风险评估。四是要坚持新时代党的组织路线，充分运用规划实施的监测评估结果加强干部考核，进一步科学精准地选贤任能。

It is necessary to strictly implement plan implementation responsibilities. This is the key to the continued successful implementation of the 15th Five-Year Plan. After decades of exploration, China has formed a “three-level, four-category” [34]34 “Three-level, four-category” (三级四类) refers to China’s planning system: three administrative levels (national, provincial, and municipal/county) and four plan categories (overall development plan, special plans, regional plans, and spatial plans). plan combination model. As a systematic project of China’s national governance, the implementation process of the Five-Year Plan inevitably involves various entities such as the central and local governments, the government and the market. Therefore, it is necessary to “concentrate resources to accomplish major tasks” under the premise of clarifying the responsibilities of all parties, mainly in accordance with the vertical division of powers and responsibilities between the central and local governments, and based on the principle of “letting the market play a decisive role in resource allocation and better playing the role of the government, forming an economic order that is both ‘vibrant’ and ‘controllable’” to clarify the attribution of responsibilities between horizontal and vertical parties, clarify the task book, timetable, and priority order for plan implementation, and assign responsibilities to posts, positions, and specific matters. It is also necessary to explore the space for deepening the role of the whole-process people’s democracy system in the plan implementation link, and further clarify and strengthen the responsibilities of the People’s Congress and the People’s Political Consultative Conference in plan implementation.

要严格落实规划实施责任。这是接续实施好“十五五”规划的关键。经过数十年探索，我国已形成了“三级四类”的规划组合模式，作为我国国家治理的系统工程，五年规划实施过程必然涉及中央与地方、政府与市场等各方主体，因此需要在明确各方责任的前提下“集中力量办大事”，主要按照中央与地方纵向事权划分，并以“使市场在资源配置中起决定性作用，更好发挥政府作用，形成既‘放得活’又‘管得住’的经济秩序”为原则厘清横向纵向各方的责任归属，明确规划实施的任务书、时间表、优先序，将责任落实到岗、定位到人、具体到事。还应探索在规划实施环节深化发展全过程人民民主制度的作用空间，进一步明确和强化人大、政协等在规划实施中的责任。

It is necessary to strengthen plan implementation monitoring and evaluation. This is an important means for the continued successful implementation of the 15th Five-Year Plan. At present and for a period to come, the foundation for China’s economy to continue to recover and improve still needs to be further consolidated, the impact of external shocks continues, and the uncertainty of China’s economic operation remains relatively large. The implementation of the 15th Five-Year Plan faces considerable pressure, and it is necessary to strengthen tracking and monitoring (such as annual monitoring, mid-term evaluation, etc.), and decide whether to adjust and optimize the plan based on the evaluation results, and propose tasks and measures to better execute the plan. At the same time, the “PDCA cycle” [35]35 PDCA cycle (Plan-Do-Check-Act) is a four-step management method used for the control and continuous improvement of processes and products, originating in industrial quality management. theory in the field of quality management also requires strengthening monitoring and evaluation, in order to timely and accurately grasp the difficulties and challenges faced in plan implementation, and accordingly strengthen measures and adopt classified policies. For areas where progress is ahead of schedule, faster than expected, or basically in line with expectations, it is necessary to continue to consolidate and expand existing results to prevent decline or rebound; for related work that is lagging behind schedule, it is necessary to optimize and adjust policies and increase efforts to tackle difficulties.

要加强规划实施监测评估。这是接续实施好“十五五”规划的重要手段。当前和今后一个时期，我国经济持续回升向好的基础还需要进一步稳固，外部冲击影响仍在持续，我国经济运行的不确定依然较大，“十五五”规划实施承压不小，需加强跟踪监测（如年度监测、中期评估等），根据评估结果来决定是否对规划进行调整优化，并提出更好执行规划的任务和举措。同时，质量管理领域“PDCA循环”理论也要求加强监测评估，以及时准确把握规划实施面临的困难和挑战，并据此强化举措、分类施策，对进度提前完成、快于预期、基本符合预期的领域，要继续巩固扩大既有成效，防止回落或反弹；对滞后于进度的相关工作，要优化调整政策，加大攻坚力度。

The continued implementation of the “15th Five-Year Plan” [36]36 The “15th Five-Year Plan” refers to China’s national economic and social development plan for the period 2026–2030, the fifteenth such plan since the founding of the People’s Republic. also requires incentive and constraint mechanisms. Only with sound and complete incentive and constraint mechanisms can the responsibilities of all parties in the plan be “implemented on the ground,” so that “the behavior of the practical subjects becomes more standardized, making the process more efficient, and the creativity of the practical subjects is better brought into play, making the results of the process more effective.” The value of the aforementioned monitoring and evaluation is not limited to further improving the plan and related policies; it also provides a basis for assessing the relevant responsible subjects in the implementation of the plan. The implementation of the plan should be incorporated into inspection tours, audit supervision, and the assessment of leading bodies and cadres, thereby strengthening the plan’s execution capacity.

接续实施好“十五五”规划还离不开激励约束机制。只有健全完善的激励约束机制才能使规划中的各方责任得以“落地”，“实践主体的行为更加规范而使过程的推进更加高效，实践主体的创造力更好发挥而使过程的结果更具实效”。上述监测评估的价值并不仅限于进一步完善规划及相关政策，还为对规划实施中相关责任主体的考核提供了依据。要将规划执行情况纳入巡视巡察、审计监督和领导班子及干部考核，以此强化规划执行力。

2. Guiding the Implementation of the “15th Five-Year Plan” through Governance in Key and Difficult Areas

2. 以重点难点领域治理牵引“十五五”规划实施

Economic work involves a myriad of tasks. “We must proceed from the overall strategic situation, grasp the principal contradiction, start from improving social psychological expectations and boosting development confidence, seize major key links, and do a good job by taking the key link to bring everything into place.” [37]37 This is a quotation from the Central Economic Work Conference held in December 2022, summarizing the approach to economic work for the following year. The process of governing difficult issues in the field of economic work is a systematic project that urgently requires strengthening the Party’s leadership. The governance of these issues not only tests or even challenges the effectiveness of the Party’s leadership over economic work, becoming an “external pressure” driving the implementation of the Party’s leadership system, but also provides opportunities and creates conditions for enhancing the Party’s leadership effectiveness. Moreover, the Party’s governance experience in key and difficult areas has significant demonstrative and spillover effects, naturally applicable to other aspects of economic work. Therefore, it is necessary to focus on key and difficult points in governance, continuously form landmark achievements of the Party’s leadership over economic governance in overcoming difficulties, and constantly optimize the economic governance system under the Party’s leadership.

经济工作千头万绪，“要从战略全局出发，抓主要矛盾，从改善社会心理预期、提振发展信心入手，抓住重大关键环节，纲举目张做好工作”。经济工作领域难点问题治理过程是一个系统工程，迫切需要加强党的领导，这些问题的治理既是对党的经济工作领导效能的检验甚至考验，成为推动党的领导制度执行的“外在压力”，更为提升党的领导效能提供契机、创造条件。不仅如此，重点难点领域党的治理经验还具有显著的示范性和外溢性，自然也适用于经济工作其他方面。为此，要聚焦治理的重点难点，在攻坚克难中不断形成党领导经济治理的标志性成果，不断优化党领导下的经济治理体系。

General Secretary Xi Jinping pointed out: “Developing new quality productive forces requires certain endowment conditions, and full consideration must be given to practical feasibility. The ‘Proposal’ draft emphasizes developing new quality productive forces according to local conditions, which is to guide everyone to work scientifically, rationally, and in a way that seeks truth from facts, preventing a rush to act.” [38]38 This quotation is from Xi Jinping’s explanatory remarks on the “Proposal” for the 14th Five-Year Plan (2021–2025), but here it is applied to the context of the 15th Five-Year Plan. Developing new quality productive forces according to local conditions holds a very prominent strategic position in the “15th Five-Year Plan” and has become a top priority in local economic work. To this end, first, it is necessary to continuously optimize and fully utilize the decision-making mechanisms of local Party committees, strengthen investigation, research, scientific demonstration, and risk assessment of major decisions, and enhance decision-making implementation, evaluation, and supervision, effectively proceeding from reality, establishing the new before abolishing the old, adapting to local conditions, providing classified guidance, and selectively promoting the development of new industries, new models, and new drivers. Second, it is necessary to ensure the effective implementation of the Party’s comprehensive leadership system, strengthen the Party’s comprehensive leadership over government departments, enterprises, and public institutions involved in scientific and technological innovation, industrial innovation, innovation in development modes (green development), as well as innovation in the economic system, scientific and technological system, and talent work mechanism, thereby enhancing the synergy among relevant departments, coordinating the “visible hand” with the “invisible hand,” and strengthening the governance capacity to “concentrate resources to accomplish major tasks” under market economy conditions. Third, it is necessary to skillfully use incentive mechanisms for taking responsibility and making achievements, promoting leading cadres at all levels to enhance their learning skills, political leadership skills, reform and innovation skills, scientific development skills, law-based governance skills, mass line skills, implementation skills, and risk management skills, overcoming difficulties in developing new quality productive forces according to local conditions.

习近平总书记指出：“发展新质生产力需要具备一定禀赋条件，要充分考虑现实可行性，《建议》稿强调因地制宜发展新质生产力，就是要引导大家科学理性、实事求是地开展工作，防止一哄而上”。因地制宜发展新质生产力在“十五五”规划中具有十分突出的战略地位，已成为各地经济工作的重中之重。为此，一是要不断优化并充分运用地方党委决策机制，加强重大决策的调查研究、科学论证、风险评估，强化决策执行、评估、监督，切实做到从实际出发，先立后破、因地制宜、分类指导，有选择地推动新产业、新模式、新动能发展。二是要确保党的全面领导制度的有效执行，加强党对科技创新、产业创新、发展方式创新（绿色发展），以及经济体制、科技体制、人才工作机制创新等工作所涉及的政府部门、企事业单位的全面领导，以此增强相关部门间工作合力，使“有形的手”与“无形的手”相互协调，进而强化在市场经济条件下“集中力量办大事”的治理能力。三是要善于运用担当作为的激励机制，促进各级领导干部增强学习本领、政治领导本领、改革创新本领、科学发展本领、依法执政本领、群众工作本领、狠抓落实本领、驾驭风险本领，在因地制宜发展新质生产力中攻坚克难。

3. Enhancing the Implementation Efficiency of the “15th Five-Year Plan” by Coordinating Economic Governance with Reform and Policy

3. 在统筹经济治理与改革、政策中提升“十五五”规划实施效率

The five-year plan is a “collection” of governance tasks, a plan concerning reform, and also clarifies policy instruments. Governance, reform, and policy are deeply integrated and closely linked. Governance tasks, deepening reform, and policy arrangements must be “deployed together.” The five-year plan coordinates governance, reform, and policy, unifying them under development.

五年规划是治理任务的“集合”，也是关于改革的规划，还明确了政策手段，治理、改革与政策相互融合、紧密关联，治理任务与深化改革、政策安排等必须是“同部署”的，五年规划统筹治理、改革与政策并统一于发展。

Reform is a powerful driving force for implementing the plan. The five-year plan is not only an important strategic tool for national development but also a crucial means to promote reform. Only by continuously deepening reform can the governance objectives in the plan be gradually realized. Deepening reform has become the guiding ideology or basic principle of successive five-year plans. Emphasizing the use of reform methods to solve development problems has become an important feature of the five-year plan. Each new five-year plan is a “mobilization order” for reform. The Third Plenary Session of the 20th Central Committee of the CPC [39]39 The Third Plenary Session of the 20th Central Committee of the CPC was held in July 2024, focusing on comprehensively deepening reform and Chinese-path modernization. deployed over 300 systemic reform tasks, with economic system reform as the driving force, clearly specifying that all tasks should be completed by 2029, the 80th anniversary of the founding of the People’s Republic of China. This means there will be deep interaction between the “15th Five-Year Plan” and institutional reform. Adhering to comprehensively deepening reform has become one of the six principles that must be followed for economic and social development during the “15th Five-Year Plan” period.

改革是推动规划实施的强大动力。五年规划既是国家发展的重要战略工具，也是推动改革的重要手段。只有持续深化改革，规划中的治理目标才能逐步得以实现。深化改革已成为历次五年规划的指导思想或基本原则，注重运用改革办法破解发展难题已成为五年规划的重要特征，每一个新的五年规划是改革的“动员令”。党的二十届三中全会部署了以经济体制改革为牵引的300多项系统性改革任务，明确到2029年即中华人民共和国成立80周年时全部完成，这意味着“十五五”规划与体制改革之间必将有深度互动，坚持全面深化改革已成为“十五五”时期经济社会发展必须遵循的六大原则之一。

At the same time, it is necessary to strengthen policy support for plan implementation, providing important guarantees for the continued implementation of the “15th Five-Year Plan.” The implementation of the plan obviously cannot be separated from policy support. Facing complex governance situations, to achieve the economic development goals of seeking progress while maintaining stability and promoting stability through progress, using a “combination” of policies has become a basic requirement for macroeconomic regulation. In the coming period, it is necessary to reasonably determine the orientation of macroeconomic policies in accordance with the goals and tasks of the “15th Five-Year Plan” and the economic development situation, with particular attention to strengthening the coordination and cooperation of fiscal, monetary, employment, industrial, regional, trade, environmental protection, and regulatory policies, as well as reform and opening up measures, thereby amplifying policy effects.

与此同时，要强化规划实施的政策支持，为接续实施好“十五五”规划的重要保障。规划的实施显然离不开政策的支持，面对复杂治理形势，为实现稳中求进、以进促稳的经济发展目标，打好政策“组合拳”已成为宏观调控的基本要求。今后一个时期，要按照“十五五”规划目标任务、结合经济发展形势，合理确定宏观政策取向，尤其要注重加强财政、货币、就业、产业、区域、贸易、环保、监管等政策和改革开放举措的协调配合，以此放大政策效应。

Author’s brief biography: Wu Zhiyuan, Vice President and Professor of Jiangxi Science and Technology Normal University.

作者简介：吴志远，江西科技师范大学副校长、教授。