Better Leveraging the Strategic Guiding Role of National Development Planning on the Track of Law-Based Governance

General Secretary Xi Jinping has pointed out: “Formulating medium- and long-term plans to guide economic and social development is an important way for our Party to govern the country.” National development planning is an important channel for transforming the Party’s propositions into the will of the state and strategic visions into the common action of the whole society; moreover, it is a concentrated embodiment of the institutional advantages of socialism with Chinese characteristics. The review and adoption of the National Development Planning Law of the People’s Republic of China (hereinafter referred to as the “National Development Planning Law”) at the Third Session of the 14th National People’s Congress is a major event in the political life of the Party and the state, and it holds milestone significance for better leveraging the strategic guiding role of national development planning and promoting high-quality development. In the critical period of consolidating the foundation and exerting full effort to basically realize socialist modernization, and in the opening year of the 15th Five-Year Plan, the formulation and promulgation of the National Development Planning Law clarifies the guiding ideology and principles that should be adhered to in national development planning work, and makes comprehensive and systematic provisions on the specific procedures for the formulation, review and approval, implementation, and supervision of national development planning. It will use the stability of law to respond to the uncertainty of the external environment, providing a strong institutional guarantee for scientifically formulating and effectively implementing national development planning on the track of law-based governance, and for continuing the struggle to achieve the grand goal of building a great modern socialist country in all respects.

习近平总书记指出：“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。”国家发展规划是将党的主张转化为国家意志、将战略愿景转化为全社会共同行动的重要途径，更是中国特色社会主义制度优势的集中体现。十四届全国人大四次会议审议通过《中华人民共和国国家发展规划法》（以下简称“国家发展规划法”），是党和国家政治生活中的一件大事，对于更好发挥国家发展规划战略导向作用、推动高质量发展具有重要里程碑意义。在基本实现社会主义现代化夯实基础、全面发力的关键时期和“十五五”开局之年，制定出台国家发展规划法，对国家发展规划工作应当坚持的指导思想和原则理念予以明确，对国家发展规划的编制、审查和批准、实施及其监督等具体程序作出全面系统规定，将以法律的稳定性应对外部环境的不确定性，为在法治轨道上科学编制和有效实施国家发展规划、接续奋斗实现全面建成社会主义现代化强国宏伟目标提供有力制度保障。

The formulation and promulgation of the National Development Planning Law is an urgent requirement for the modernization of national governance.

制定出台国家发展规划法是国家治理现代化的迫切要求

General Secretary Xi Jinping has pointed out: “As the times develop and reform advances, the modernization of national governance increasingly urgently demands a scientifically complete system of legal norms.” Since the 18th National Congress of the CPC, the Party Central Committee with Comrade Xi Jinping at its core has adhered to comprehensive law-based governance, comprehensively incorporating economic and social development onto the track of law-based governance, and the legalization of various economic and social fields has advanced steadily and surely. The formulation and promulgation of the National Development Planning Law provides a more complete institutional guarantee for advancing the modernization of the national governance system and governance capacity, and has far-reaching significance for consolidating the legal foundation of Chinese-path modernization.

习近平总书记指出：“随着时代发展和改革推进，国家治理现代化对科学完备的法律规范体系的要求越来越迫切。”党的十八大以来，以习近平同志为核心的党中央坚持全面依法治国，将经济社会发展全面纳入法治轨道，经济社会各领域法治化建设蹄疾步稳。国家发展规划法的制定出台，为推进国家治理体系和治理能力现代化提供了更加完善的制度保障，对于夯实中国式现代化的法治根基具有深远意义。

An important manifestation of a law-based China. General Secretary Xi Jinping has pointed out: “The rule of law is an important pillar of the national governance system and governance capacity.” Since the New Era, under the leadership of the Party Central Committee, we have codified the Civil Code, amended the Legislation Law, formulated and implemented the Yangtze River Protection Law, and promulgated the Private Sector Promotion Law. Breakthrough progress and historic achievements have been made in building a law-based China, and the safeguarding role of the rule of law in consolidating foundations, stabilizing expectations, and benefiting the long term has become increasingly prominent. The formulation and promulgation of the National Development Planning Law is a summary and refinement of the successful experience of national development planning work over a long period, especially since the New Era. It establishes practices that have proven effective over many years as legal institutional norms, providing a strong legal guarantee for better leveraging the strategic guiding role of national development planning, and is conducive to enhancing the overall effectiveness of the national planning system under the new circumstances. This marks the entry of national development planning work into a new stage of legalization. It not only perfects the socialist legal system with Chinese characteristics but also fully demonstrates our Party’s firm determination to govern the country according to law and to exercise state power according to law.

法治中国建设的重要体现。习近平总书记指出：“法治是国家治理体系和治理能力的重要依托。”新时代以来，在党中央领导下，我们编纂民法典、修改立法法、制定实施长江保护法、出台民营经济促进法等，法治中国建设取得突破性进展、历史性成就，法治固根本、稳预期、利长远的保障作用日益凸显。国家发展规划法的制定出台，是对长期以来特别是新时代以来国家发展规划工作成功经验的总结与提炼，将多年来行之有效的做法确立为法律制度规范，为更好发挥国家发展规划的战略导向作用提供有力法治保障，有利于新形势下提升国家规划体系整体效能。这标志着国家发展规划工作迈入法治化新阶段，不仅完善了中国特色社会主义法律体系，更充分彰显了我们党依法治国、依法执政的坚定决心。

An objective need for perfecting the socialist market economy system. General Secretary Xi Jinping has emphasized: “A socialist market economy is essentially a law-based economy.” Properly handling the relationship between the government and the market is the core issue of economic system reform. Against the backdrop of the accelerated evolution of changes unseen in a century, continuously rising geopolitical risks, and frequent fluctuations in the world economy, what market entities most hope for is stable expectations. The National Development Planning Law, based on the Constitution, standardizes the formulation of national development planning, guarantees its implementation, and endows the strategic intentions of the state with the authority, seriousness, and certainty of law. It can effectively prevent frequent policy changes and provide a fair, transparent, and predictable policy environment for market entities. The National Development Planning Law clearly defines the boundaries of government powers and responsibilities in the formulation and implementation of plans. In essence, it draws a “red line” for public power, leaving ample space for the market to allocate resources. This is both a legal safeguard for an effective market and a legal norm for a well-functioning government. It plays an irreplaceable role as an “anchor” in stabilizing the overall macroeconomic situation, stimulating the vitality of market entities, and stabilizing the expectations of the whole society.

完善社会主义市场经济体制的客观需要。习近平总书记强调：“社会主义市场经济本质上是法治经济”。处理好政府和市场关系，是经济体制改革的核心问题。在百年变局加速演进、地缘政治风险持续上升、世界经济频繁波动的大背景下，经营主体最期盼的是预期稳定。国家发展规划法以宪法为依据，规范国家发展规划制定、保障国家发展规划实施，赋予国家战略意图以法律的权威性、严肃性、确定性，能够有效避免政策朝令夕改，为经营主体提供公平透明、可预期的政策环境。国家发展规划法明确界定政府在规划编制实施中的权责边界，实质上是为公权力划定“红线”，为市场配置资源留出充分空间。这既是对有效市场的法治护航，也是对有为政府的法治规范，对于稳定宏观经济大盘、激发经营主体活力、稳定全社会预期具有不可替代的“压舱石”作用。

An inevitable requirement for enhancing macroeconomic governance capacity. General Secretary Xi Jinping has pointed out: “Improve the macroeconomic governance system and leverage the strategic guiding role of national development planning.” Institutional advantage is a country’s greatest advantage, and institutional competition is the most fundamental competition between countries. Institutional competition is largely reflected in competition in strategic planning capacity. The National Development Planning Law provides important legal support for better transforming the institutional advantages of socialism with Chinese characteristics into governance effectiveness. From a legal logic perspective, the National Development Planning Law, through rigorous legal norms, promotes the formation of a national planning system with accurate positioning, clear boundaries, complementary functions, and unified cohesion. This can ensure that the deployment and implementation of national strategic objectives are not diminished by administrative levels, not distorted by local interest games, and are not arbitrarily changed or subject to repeated reversals. From a governance effectiveness perspective, the National Development Planning Law, through statutory procedures, runs the will of the state through the entire process of economic and social development, improves the macroeconomic governance system, and promotes efficient coordination among fiscal, monetary, industrial, regional, and other types of policies. This high-efficiency governance based on the rule of law will greatly enhance the state’s strategic capacity to mobilize various resources and respond to risks and challenges, providing solid legal support for our country to gain the initiative in fierce international competition.

提升宏观经济治理能力的必然要求。习近平总书记指出：“健全宏观经济治理体系，发挥国家发展规划的战略导向作用”。制度优势是一个国家的最大优势，制度竞争是国家间最根本的竞争。制度竞争在很大程度上体现为战略规划能力的竞争，国家发展规划法为将中国特色社会主义制度优势更好转化为治理效能提供重要法律支撑。从法理逻辑上看，国家发展规划法通过严密的法律规范，推动形成定位准确、边界清晰、功能互补、统一衔接的国家规划体系，可以保证国家战略目标的部署和落实不因行政层级而递减、不因地方利益博弈而走样，不随意更改也不折腾；从治理效能上看，国家发展规划法通过法定程序将国家意志贯穿于经济社会发展全过程，健全宏观经济治理体系，促进财政、货币、产业、区域等各类政策高效协同。这种基于法治的高效能治理，将极大提升国家动员各类资源、应对风险挑战的战略能力，为我国在激烈的国际竞争中赢得主动提供坚实法治支撑。

Deeply grasp the basic spirit of the National Development Planning Law.

深刻把握国家发展规划法的基本精神

The formulation of the National Development Planning Law has consistently adhered to the guidance of Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, comprehensively implemented Xi Jinping’s economic thought and Xi Jinping’s thought on the rule of law, and thoroughly implemented the spirit of the 20th National Congress of the CPC and all previous plenary sessions of the 20th Central Committee. The key to deeply understanding and grasping the basic spirit, basic content, and basic requirements of this law lies in deeply understanding and grasping how this law ensures, through statutory procedures, that the Party’s propositions and the state’s strategic intentions take root and bear fruit.

国家发展规划法的制定，始终坚持以习近平新时代中国特色社会主义思想为指导，全面贯彻落实习近平经济思想和习近平法治思想，深入贯彻党的二十大和二十届历次全会精神。深刻理解和把握这一法律的基本精神、基本内容、基本要求，关键在于深入理解和把握这一法律是如何通过法定程序确保党的主张和国家战略意图落地生根的。

Highlight adherence to the Party’s overall leadership. At the opening ceremony of a special研讨班 [n] for major leading cadres at the provincial and ministerial level to study and implement the spirit of the Fourth Plenary Session of the 20th Central Committee, General Secretary Xi Jinping systematically summarized the rich

突出坚持党的全面领导。习近平总书记在省部级主要领导干部学习贯彻党的二十届四中全会精神专题研讨班开班式上，系统总结我们党在制定和实施五年规划的长期实践中创造积累的丰富经验，其中第一条就是坚持党中央集中统一领导。从我国发展国民经济的第一个五年计划至第十五个五年规划，每一次都是在党中央领导下制定、实施并完成的。正是因为始终坚持党的领导，我国才能在几十年间保持战略定力、接续奋斗，创造了经济快速发展和社会长期稳定两大奇迹。国家发展规划法在“总则”中明确：“国家发展规划工作坚持中国共产党的领导，坚持以习近平新时代中国特色社会主义思想为指导，全面贯彻落实党的路线方针政策和党中央决策部署”。这一总体要求并非抽象的政治口号，而是内嵌于具体的法律要求中。国家发展规划根据党中央关于制定国民经济和社会发展五年规划的建议和决策部署，由国务院组织编制；国家发展规划草案按照规定程序报请党中央、国务院审议，之后由国务院按照法律规定程序提请全国人民代表大会审查和批准。这就从法律上理顺了党的主张向国家意志转化的逻辑，充分彰显了党总揽全局、协调各方的领导核心作用，保证了规划工作始终沿着正确政治方向前进，实现了坚持党的领导、人民当家作主、依法治国有机统一。

Establishing the leading position of the national development plan. In response to problems such as the variety and unclear positioning of plans in the past planning system, the National Development Plan Law establishes the leading position of the national development plan, optimizes and improves the national planning system — this is a major highlight. This law clearly stipulates that the state establishes and improves a national planning system with the national development plan as the lead, territorial space planning as the foundation, and special plans and regional plans as support, composed of national and local plans together, embodying profound systems-thinking. Among them, the national development plan addresses the strategic objectives and strategic orientation of “what to do and when to do it,” playing the role of the “general baton”; territorial space planning addresses the spatial layout issue of “where to do it,” playing a guiding role tailored to local conditions; special plans and regional plans address the specific pathways of “how to do it,” playing a role in differentiated implementation. For localities, this law requires that the draft outline of the Five-Year Plan for National Economic and Social Development of provinces, autonomous regions, and municipalities directly under the central government be aligned with the national development plan, both ensuring the implementation of national strategy and preventing the content of plans from being “the same at all levels,” encouraging localities to identify their distinctive positioning for development within the larger chessboard of national strategy by leveraging their own comparative advantages.

确立国家发展规划的统领地位。针对过去规划体系中存在的种类繁杂、定位模糊等问题，国家发展规划法确立了国家发展规划的统领地位，优化并完善了国家规划体系，这是一大亮点。这一法律明确国家建立健全以国家发展规划为统领，以国土空间规划为基础，以专项规划、区域规划为支撑，由国家和地方规划共同组成的国家规划体系，蕴含着深刻的系统论思想。其中，国家发展规划解决“干什么、何时干”的战略目标与战略导向问题，发挥“总指挥棒”作用；国土空间规划解决“在哪干”的空间布局问题，发挥因地制宜指导作用；专项规划和区域规划解决“怎么干”的具体路径问题，发挥分类施策作用。对于地方，这一法律要求省、自治区、直辖市国民经济和社会发展五年规划纲要草案应当与国家发展规划相衔接，既确保国家战略的落实落地，又防止规划内容“上下一般粗”，鼓励结合自身比较优势，在国家战略的大棋局中找准地方发展的特色定位。

Clarifying important principles for scientifically formulating plans. The key to planning lies in science, and its authority stems from law-based governance. The National Development Plan Law establishes strict “hard constraints” on the principles and procedures for plan formulation, stipulating that the laws of nature, economic laws, and laws of social development must be followed, and that domestic and international considerations must be coordinated, goal-orientation and problem-orientation must be combined, medium- and long-term goals and short-term goals must be linked, comprehensive planning and highlighting key points must be balanced, and strategic nature and operability must be unified. This law adheres to the concept of whole-process people’s democracy, establishing public participation, expert argumentation, and the auxiliary support of think tanks as statutory procedures, requiring preliminary research to be conducted and multi-angle argumentation and multi-plan comparison to be strengthened, and soliciting opinions and suggestions from the public through channels such as the internet, truly “opening the door to compile plans” and unifying top-level design with seeking advice from the people. In the specific compilation of plans, to prevent “shooting from the hip” decision-making and “vanity projects,” the compilation of the national development plan must comprehensively consider factors such as factor support conditions, resource and environmental carrying capacity, fiscal affordability, and major risk prevention. According to requirements, the setting of any planning target must be based on rigorous fiscal assessment and risk研判 [n1], that is, it must answer a series of major practical questions such as “Is the development foundation adequate?”, “Are the conditions sufficient?”, “Where will the money come from?”, and “How will risks be controlled?” These provisions mark the greater institutionalization and standardization of national development plan compilation, helping ensure that the main objectives and indicators of economic and social development, major strategic tasks, major policy measures, and major engineering projects can withstand the test of practice, the people, and history.

明确科学编制规划的重要原则。规划的关键在于科学，权威性源于法治。国家发展规划法在规划编制的原则与程序等方面明确了严格的“硬约束”，规定应当遵循自然规律、经济规律和社会发展规律，并坚持国内和国际相统筹、目标导向和问题导向相结合、中长期目标和短期目标相贯通、全面规划和突出重点相协调、战略性和操作性相统一。这一法律坚持全过程人民民主的理念，将公众参与、专家论证、智库等的辅助支持确立为法定程序，要求开展前期研究并加强多角度论证和多方案比选，通过互联网等途径向社会公开征集意见建议，真正做到“开门编规划”，把顶层设计和问计于民统一起来。在具体规划编制中，为防止“拍脑袋”决策和“政绩工程”，编制国家发展规划应当统筹考虑要素支撑条件、资源环境承载能力、财政承受能力和重大风险防范等因素。按照要求，任何规划目标的设定都必须建立在严谨的财政评估和风险研判基础之上，也就是要回答好“发展基础行不行”“条件够不够”“钱从哪里来”“风险怎么控”等一系列重大现实问题。这些规定标志着国家发展规划编制更加制度化、规范化，有利于确保经济社会发展主要目标和指标、重大战略任务、重大政策举措、重大工程项目等，都经得起实践、人民、历史检验。

Strengthening the review and approval of development plans and supervision over their implementation. The National Development Plan Law constructs a comprehensive, whole-process, multi-level review and supervision system. In terms of review and approval, it strengthens the review power of the National People’s Congress, further refines the review procedures, and clarifies the preliminary review by the Financial and Economic Affairs Committee of the National People’s Congress and the review by various delegations; in terms of plan adjustment, it tightens the institutional cage, clearly stipulating that “after the national development plan is published, it shall not be adjusted without statutory procedures,” and strictly limits the conditions for adjustment and the approval procedures; in terms of supervision over plan implementation, it clarifies the formation of a “combined punch” of NPC supervision, and supervision by supervisory organs and audit organs according to law, ensuring that every link from plan compilation to implementation to evaluation has a legal basis and rules to follow. These arrangements help ensure that the planning blueprint is transformed into development results without compromise.

强化发展规划的审查批准和对发展规划实施的监督。国家发展规划法构建了全方位、全过程、多层次的审查监督体系。在审查批准方面，强化了全国人民代表大会的审查权，进一步细化了审查程序，明确全国人民代表大会财政经济委员会进行初步审查、各代表团的审查等内容；在规划调整方面，扎紧了制度的笼子，明确规定“国家发展规划公布后，未经法定程序，不得调整”，并严格限定了调整的条件和报批程序；在对规划实施的监督方面，明确形成人大监督、监察机关和审计机关依法监督等“组合拳”，确保规划从编制、实施到评估的每个环节都于法有据、有章可循。这些部署安排，有利于推动规划蓝图不折不扣地转化为发展实效。

Practical requirements for implementing the National Development Plan Law

贯彻实施国家发展规划法的实践要求

General Secretary Xi Jinping pointed out: “The vitality of law lies in its implementation, and the authority of law also lies in its implementation.” In the process of advancing Chinese-path modernization, implementing the National Development Plan Law must adhere to a systems perspective, improve implementation mechanisms according to legal provisions, strengthen policy coordination, and construct a full-chain law-based implementation system from target decomposition, policy support, factor guarantee to monitoring and assessment, transforming institutional advantages into governance effectiveness.

习近平总书记指出：“法律的生命力在于实施，法律的权威也在于实施。”在推进中国式现代化进程中，贯彻落实国家发展规划法，必须坚持系统观念，依据法律规定完善实施机制，强化政策协同，构建从目标分解、政策支持、要素保障到监测考核的全链条法治化实施体系，将制度优势转化为治理效能。

Strengthening the effective alignment of annual plans for social development and other plans at all levels and of all types with the national development plan. “A journey of a thousand miles begins with a single step.” [n2] To implement the National Development Plan Law, the first step is to make the alignment between the annual plan for national economic and social development and the national development plan solid and detailed; at the same time, ensure the detailed implementation of tasks in key areas of the national development plan by other plans at all levels and of all types, ensuring that specific deployments in various fields work in the same direction as the overall national strategy. For binding targets determined by the national development plan, annual decomposition must be carried out according to law, clarifying annual progress baselines, and incorporating them into the task lists of various regions and departments, ensuring not only “calculating the total account,” but also “calculating the detailed account” and “calculating the progress account.” The annual plan for national economic and social development, as a short-term regulation tool, must serve medium- and long-term cross-cycle design. When formulating annual investment plans and lists of major projects, priority must be given to major engineering projects determined by the national development plan, transforming the medium- and long-term “planning map” into an operable “construction drawing,” ensuring that China’s strategic development goals accumulate small victories into big ones.

强化社会发展年度计划、其他各级各类规划同国家发展规划的有效衔接。“不积跬步，无以至千里”。贯彻实施国家发展规划法，首先要做实做细国民经济和社会发展年度计划同国家发展规划的衔接；同时抓好其他各级各类规划对国家发展规划重点领域任务的细化落实，确保各领域的具体部署与国家整体战略同向发力。对于国家发展规划确定的约束性指标，要依法进行年度分解，明确年度进度底线，将其纳入各地区、各部门的任务清单，确保不仅“算总账”，更“算细账”“算进度账”。国民经济和社会发展年度计划作为短期调控手段，要服务于中长期的跨周期设计。制定年度投资计划、重大项目清单时，要优先安排国家发展规划确定的重大工程项目，将中长期的“规划图”转化为可操作的“施工图”，确保我国发展战略目标积小胜为大胜。

Enhancing the consistency of macro-policy orientation. The formation of synergy in macro-policies is an important guarantee for the implementation of plans. Improving the coordination mechanism between the national development plan and macro-policies, as well as the work coordination mechanism, is an important guarantee for enhancing the modernization level of the national governance system and governance capacity. A macro-policy coordination mechanism led by the national development plan should be established and improved, taking the national development plan as the basic basis for formulating macro-policies. Through statutory procedures, ensure that the “strength” of fiscal policy, the “precision” of monetary policy, and the “orientation” of industrial policy resonate at the same frequency under the baton of the national development plan. Before the introduction of important policies such as fiscal, monetary, industrial, price, employment, as well as regional, land, and environmental protection policies, compliance and consistency reviews should be conducted against the strategic objectives of the national development plan, and non-economic policies such as safety, environmental protection, and social supervision should be included in the consistency assessment, to prevent “synthesis fallacies” [n3] in macro-policies caused by departmental departmentalism, layer upon layer of escalation, and other situations.

增强宏观政策取向一致性。宏观政策形成合力是规划落地实施的重要保障。健全国家发展规划与宏观政策协调和工作协同机制，是提升国家治理体系和治理能力现代化水平的重要保障。要建立健全以国家发展规划为牵引的宏观政策协调机制，把国家发展规划作为制定宏观政策的基本依据。通过法定程序，确保财政政策的“力度”、货币政策的“精度”、产业政策的“导向”在国家发展规划的指挥棒下同频共振。财政、货币、产业、价格、就业以及区域、土地、环保等重要政策出台前，要对照国家发展规划的战略目标进行合规性与一致性审查，并将安全、环保、社会监管等非经济性政策纳入一致性评估，防止因部门本位主义、层层加码等情况导致出现宏观政策“合成谬误”。

Constructing a resource factor guarantee mechanism for plan implementation. The implementation of plans cannot be separated from the support and guarantee of factor resources. According to legal provisions, the traditional inertia of resource allocation must be broken, adhering to the principle that projects follow the plan, and factors follow the project. The law clearly states that “central fiscal funds shall be prioritized for major strategic tasks, major policy measures, and major engineering projects determined by the national development plan,” which requires strengthening the dynamic matching of medium- and long-term fiscal plans with the national development plan, ensuring that national strategic tasks have long-term and stable funding channels. Guide financial capital, land indicators, data resources, etc., to prioritize concentration in areas such as technological innovation, green transformation, and people’s livelihoods. For projects that do not conform to the orientation of the national development plan, approval, land supply, and loans shall not be granted, preventing blind launching and a rush to action.

构建规划实施的资源要素保障机制。规划落地实施离不开要素资源支撑保障。要依据法律规定，打破传统的资源配置惯性，坚持项目跟着规划走，要素跟着项目走。法律明确“中央财政资金优先投向国家发展规划确定的重大战略任务、重大政策举措、重大工程项目”，这要求加强中长期财政规划与国家发展规划的动态匹配，确保国家战略任务有长期、稳定的资金渠道。引导金融资本、土地指标、数据资源等优先向科技创新、绿色转型、民生等领域集聚。对于不符合国家发展规划导向的项目，不予核准、供地、贷款，防止盲目上马、一哄而上。

Strengthen the alignment of local development plans with national development plans. General Secretary Xi Jinping pointed out: “When various regions plan their economic and social development for the 15th Five-Year Plan period, they must position themselves precisely within the overall national situation and strengthen planning alignment.” The Opinions on Unifying the Planning System to Better Leverage the Strategic Guiding Role of National Development Plans, issued by the Party Central Committee and the State Council in 2018, made institutional arrangements for straightening out planning relationships and improving planning management. The key to implementing the National Development Plan Law lies in upholding the authority of the national planning system, ensuring nationwide coordination, and adhering to the principle that lower-level plans obey higher-level plans, subordinate plans serve superior plans, and plans at the same level coordinate with one another. When formulating local development plans, all regions must strengthen their awareness of benchmarking and alignment, and establish a strict system for the filing, review, and compliance examination of plans. In terms of target setting, spatial layout, and industrial selection, local development plans must submit to the main functional area strategy and the major productive forces layout determined by the national development plan. They must not cross the line by even half a step into areas explicitly designated by the state as prohibited development zones or ecological red lines, and they must not make compromises on the tasks of cutting overcapacity and adjusting structure set by the state. At the same time, it is necessary to prevent both local protectionism and market segmentation while avoiding mechanical implementation. All localities are encouraged to identify differentiated positioning based on their own comparative advantages, but they must never engage in low-level redundant construction or disorderly vicious competition that runs counter to the overall national strategy.

加强地方发展规划与国家发展规划相衔接。习近平总书记指出：“各地区谋划‘十五五’时期经济社会发展，要在全国大局中精准定位，加强规划衔接。”中共中央、国务院2018年印发的《关于统一规划体系更好发挥国家发展规划战略导向作用的意见》，对理顺规划关系、完善规划管理作出了制度安排。贯彻实施国家发展规划法，重点在于维护国家规划体系的权威性，确保全国一盘棋，坚持下位规划服从上位规划、下级规划服务上级规划、等位规划相互协调。各地区在制定地方发展规划时，要强化对标对表意识，建立严格的规划备案审查和合规性审查制度。地方发展规划在目标设定、空间布局、产业选择上，要服从国家发展规划确定的主体功能区战略和重大生产力布局，对于国家明确的禁止开发区、生态红线区等不得越雷池半步，对于国家确定的去产能、调结构任务不能搞变通。同时，既要防止地方保护和市场分割，又要避免机械执行。鼓励各地结合自身比较优势，找准差异化定位，但决不能搞与国家整体战略相悖的低水平重复建设或无序恶性竞争。

Improve the full-cycle monitoring, evaluation, and accountability system. The guarantee of implementation lies in supervision. The National Development Plan Law incorporates the implementation of plans into the scope of law-based supervision, making supervision, evaluation, and assessment the “hard criteria” for ensuring implementation. It is necessary to implement the provisions on mid-term evaluation and summary evaluation, and comprehensively apply modern information technology methods to improve the scientific nature of evaluations. The mid-term evaluation report, after being submitted to the Party Central Committee for approval, is then submitted to the Standing Committee of the National People’s Congress for deliberation; the summary evaluation report, after being submitted to the Party Central Committee for approval, is submitted together with the draft national development plan for the next planning period to the National People’s Congress for review and approval. For problems discovered during evaluation, a “problem list” and a “rectification ledger” should be established to promote the implementation and effectiveness of the plan. A clear assessment and accountability mechanism should be established, taking the implementation of the national development plan as an important reference for measuring the performance of various regions and departments in exercising their duties according to law. For acts such as engaging in formalism, making superficial efforts, or illegally approving projects, blindly borrowing, or building performance-projects [4]4 “Performance projects” (政绩工程) refers to projects undertaken by local officials primarily to demonstrate their political achievements and advance their careers, often at the expense of actual local needs, fiscal sustainability, or long-term development. during plan implementation, legal responsibility will be pursued according to law. The principle that power must be accompanied by responsibility, responsibility must be shouldered, and dereliction of responsibility must be investigated must be upheld to ensure that the national development plan takes root and is effectively implemented.

完善全周期监测评估与考核问责制度。执行的保障在于监督。国家发展规划法将规划实施情况纳入法治监督范畴，把监督、评估与考核作为抓落实的“硬杠杠”。要落实中期评估、总结评估等方面的规定，综合运用现代信息技术手段提高评估的科学性。中期评估报告报党中央同意后，提请全国人民代表大会常务委员会审议；总结评估报告报党中央同意后，与提请审查和批准的下一个规划期国家发展规划草案一并提交全国人民代表大会。对于评估中发现的问题，建立“问题清单”与“整改台账”，推动规划落地见效。建立明确的考核问责机制，把国家发展规划实施情况作为衡量各地区、各部门依法履职情况的重要参考。对于在规划实施中搞形式主义、做表面文章，或者违规审批、盲目举债、搞政绩工程等行为，将依法追究法律责任。坚持有权必有责、有责要担当、失责必追究，确保国家发展规划落地生根、有效实施。