On the Systematic Thinking of Five-Year Plans in the New Era

On March 12, 2026, the Fourth Session of the 14th National People’s Congress voted to adopt the Resolution on the Outline of the 15th Five-Year Plan for National Economic and Social Development. The following day, the Outline of the 15th Five-Year Plan for National Economic and Social Development of the People’s Republic of China was formally promulgated. Formulating and implementing five-year plans for national economic and social development is an important mode of governance for the Party and a crucial instrument for China to achieve rapid economic development and long-term social stability. The key to the success of this governance approach lies in permeating the entire process of planning work with systematic thinking, making it the epistemological and methodological foundation for guiding national development. Adhering to systematic thinking requires us to “insist on observing things developmentally rather than statically, comprehensively rather than one-sidedly, systematically rather than fragmentarily, and in terms of universal interconnection rather than in isolated singularity, and to properly handle various major relationships.” [n] In October 2025, when General Secretary Xi Jinping provided an explanation of the Proposal of the Central Committee of the Communist Party of China on Formulating the 15th Five-Year Plan for National Economic and Social Development, he emphasized that the drafting of the Proposal must “adhere to systematic thinking, and in accordance with the requirements of coordinated advancement of the Five-Sphere Integrated Plan [n] and balanced promotion of the Four-Pronged Comprehensive Strategy, [n] comprehensively deploy all aspects of economic and social development and Party building.” [n] Examined from the perspective of systematic thinking, the five-year plan is not only a grand blueprint guiding national development but also a systematic project with complex layers and rigorous structure. However, current academic research on five-year plans generally focuses on a specific “five-year plan,” delving into its planning content, guiding ideology, and practical significance, or traces the entire history of five-year plans (plans) since the founding of New China, systematically summarizing historical experiences in their formulation and implementation. Research on the characteristics of systematic thinking inherent in the five-year plan itself remains insufficient. In fact, the systematic thinking characteristics of the five-year plan are embodied not only in the planning content itself but also in the relationships between planning systems, as well as in the entire process of planning formulation, implementation, and evaluation. Therefore, the systematic thinking characteristics inherent in the five-year plan can be systematically studied and explored from three dimensions: planning content, planning system, and planning subjects, with a view to better implementing the Party Central Committee’s various decisions and deployments regarding the five-year plan, continuously transforming the institutional advantages of the five-year plan into national governance effectiveness and developmental advantages, and gathering historical momentum for advancing Chinese-path modernization.

2026年3月12日，第十四届全国人民代表大会第四次会议表决通过《关于国民经济和社会发展第十五个五年规划纲要的决议》。次日，《中华人民共和国国民经济和社会发展第十五个五年规划纲要》正式颁布。编制和实施国民经济和社会发展五年规划，是党治国理政的重要方式，也是我国实现经济快速发展和社会长期稳定的重要法宝。这一治理方式之所以成功，关键在于将系统思维贯穿于规划工作的全过程，使之成为引领国家发展的认识论和方法论基础。坚持系统思维，要求我们“坚持发展地而不是静止地、全面地而不是片面地、系统地而不是零散地、普遍联系地而不是单一孤立地观察事物，妥善处理各种重大关系”。2025年10月，习近平总书记在对《中共中央关于制定国民经济和社会发展第十五个五年规划的建议》进行说明时强调，规划《建议》稿的起草要“坚持系统思维，按照统筹推进‘五位一体’总体布局、协调推进‘四个全面’战略布局的要求，全面部署经济社会发展和党的建设各方面工作”。从系统思维视域审视，五年规划不仅是引领国家发展的宏伟蓝图，更是一项层次复杂、结构严谨的系统工程。然而，当前学界关于五年规划的研究普遍聚焦于某一个“五年规划”，深入剖析其规划内容、指导思想与现实意义，抑或回溯新中国成立以来的整个五年规划（计划）史，系统总结其在编制与实施中的历史经验，而关于五年规划本身所蕴含的系统思维特质的研究成果尚显不足。事实上，五年规划的系统思维特质，既体现在规划内容本身，也体现在规划体系之间，还体现于规划编制、实施、评估的全过程。因此，可以从规划内容、规划体系、规划主体三个维度，系统研究和探析五年规划所蕴含的系统思维特质，以期更好贯彻落实党中央关于五年规划的各项决策部署，不断推动五年规划的制度优势持续转化为国家治理效能和发展优势，为推进中国式现代化凝聚历史合力。

I. Planning the Five-Year Plan within the Overall Layout of Planning Content

一、在规划内容的整体布局中谋划五年规划

The overall layout of planning content is the logical thread linking the planning system and the actions of planning subjects. Dialectical materialism holds that the distinction and opposition between system and elements are relative and can transform into each other under certain conditions. “What is a system within a certain scope can be an element within a larger scope; conversely, what is an element within a certain scope can become a system within a smaller scope.” Since the New Era, the content layout of China’s five-year plans has exhibited a high degree of systematicity. This layout takes the macro-level “theme” as its strategic guide, clarifies task arrangements through layer-by-layer “deployments,” quantifies and makes assessable the objectives through specific “indicators,” and ultimately relies on “means” to ensure the blueprint is realized. The theme, deployments, indicators, and means not only coexist as subsystems within the larger system of planning content but are themselves independent systems composed of lower-level elements, thus forming a system structure of nested layers and coupled functions.

规划内容的整体布局，是规划体系衔接与规划主体行动的逻辑主线。唯物辩证法认为，系统和要素的区别与对立具有相对性，两者在一定条件下能够相互转化。“在一定范围内是系统，在更大范围内可以是要素；反之，在一定范围内是要素，在更小的范围内又可以成为系统。”新时代以来，我国五年规划的内容布局呈现出高度的系统性。该布局以宏观“主旨”为战略引领，经由层层“部署”明确任务安排，再通过具体“指标”实现目标的量化与可考核化，最终依托“手段”确保蓝图落地。主旨、部署、指标、手段等不仅作为子系统共存于规划内容的大系统之中，其本身亦是由下级要素构成的独立子系统，由此形成了层层嵌套、功能耦合的系统结构。

(A) The Theme Element: Upholding the Harmonious Unity of Economic Development and Human Development

（一）主旨要素：坚持经济发展与人的发展的和谐统一

The stability of a system largely depends on whether it possesses a clear purpose. Purpose, i.e., the theme of the plan, is both a concentrated reflection of the plan’s own value pursuit and the fundamental principle guiding the entire process of planning formulation and implementation. Only when a system has purpose can its internal elements form a clear development orientation, thereby eliminating interference and achieving the system’s sustained and stable operation. In the five-year plan, its “theme” is prominently manifested as upholding the harmonious unity of economic development and human development. “In planning economic and social development for the ‘15th Five-Year Plan’ period, we must not forget the original aspiration, take benefiting the people as the fundamental value orientation, insist on safeguarding and improving people’s livelihoods through development, and steadily promote common prosperity.” [n] As an important mode of governance for our Party, the fundamental characteristic of the five-year plan is that it thoroughly transcends the binary oppositional thinking that separates economic development from human development, striving to achieve their harmonious unity at a higher level. General Secretary Xi Jinping emphasized: “Good policies, guidelines, and development plans should conform to the people’s will, meet the people’s aspirations and expectations, and come from the masses and go to the masses.” [n] The Communist Party of China has always taken “planning by the people” and “planning for the people” as the fundamental principle for formulating and implementing five-year plans, organically integrating the central task of economic construction with the fundamental goal of enhancing people’s well-being and promoting people’s comprehensive development. In institutional design and policy practice, it has effectively transcended the development dilemma of economic growth and social fairness being separated from each other, a dilemma prevalent in Western countries’ planning and development practices dominated by the logic of capital.

系统的稳定性在很大程度上取决于其是否具备明确的目的性。目的性即规划的主旨，既是规划本身价值追求的集中反映，也是贯穿规划编制与实施全过程的根本遵循。只有当系统具有目的性，其内部各要素才能形成清晰的发展导向，从而排除干扰，实现系统持续而稳定的运行。在五年规划中，其“主旨”突出表现为坚持经济发展与人的发展和谐统一。“谋划‘十五五’时期经济社会发展，要不忘初心，把造福人民作为根本价值取向，坚持在发展中保障和改善民生，稳步推动共同富裕”。五年规划作为我们党治国理政的重要方式，其根本特性在于彻底超越了将经济发展与人的发展相割裂的二元对立思维，致力于实现二者在更高层次上的和谐统一。习近平总书记强调：“好的方针政策和发展规划都应该顺应人民意愿、符合人民所思所盼，从群众中来、到群众中去。”中国共产党始终将“靠民规划”“为民规划”作为编制和实施五年规划的根本遵循，将经济建设这一中心工作与增进人民福祉、促进人的全面发展这一根本目标有机结合，在制度设计与政策实践中有效跨越了西方国家规划与发展实践中由资本逻辑主导所导致的经济增长与社会公平相互割裂的发展困境。

Although the historical context and development requirements facing China differ across periods, the value concept of adhering to the people’s standpoint and improving people’s livelihood and well-being has been consistent. The 12th Five-Year Plan proposed the income distribution reform goal of “two synchronizations and two increases,” [n] striving to ensure that the fruits of economic growth are shared more fairly and broadly by all the people. The 13th Five-Year Plan set “poverty alleviation” as a binding indicator, clarifying the goal of “lifting approximately 50 million registered poor people out of poverty” by 2020, demonstrating the firm determination for shared enjoyment of development achievements with the solemn commitment that “on the road to moderate prosperity in all respects, no one should be left behind.” [n] The 14th Five-Year Plan further placed people’s livelihood and well-being at the core; among the main indicators of the plan, those directly related to people’s livelihood and well-being accounted for over one-third. The 15th Five-Year Plan explicitly requires adherence to the principle of “putting the people first,” emphasizing “expanding development space while meeting people’s livelihood needs,” transforming key livelihood areas such as employment, education, and healthcare into strategic investment highlands for Chinese-path modernization, deeply clarifying the value ontology of “for whom modernization is built.” Furthermore, the 15th Five-Year Plan further proposes “closely integrating benefiting people’s livelihoods with promoting consumption, and investing in things with investing in people,” promoting livelihood investment from the traditional category of redistribution to an endogenous driving force empowering Chinese-path modernization.

尽管我国在不同时期面临的时代背景、发展要求有所不同，但坚持人民立场、改善民生福祉的价值理念是一以贯之的。“十二五”规划提出“两个同步、两个提高”的收入分配改革目标，着力推动经济增长成果更公平、更广泛地惠及全体人民；“十三五”规划将“脱贫攻坚”设为约束性指标，明确了到2020年“实现约5000万建档立卡贫困人口脱贫”的目标，以“全面小康路上一个也不能少”的庄严承诺彰显了发展成果全民共享的坚定决心；“十四五”规划进一步将民生福祉置于核心位置，在规划的主要指标中，直接关乎民生福祉的指标占比就超过1/3；“十五五”规划明确要求遵循“坚持人民至上”的原则，强调“在满足民生需求中拓展发展空间”，将就业、教育、医疗等关键民生领域转化为中国式现代化的战略投资高地，深度廓清了“现代化为谁而建设”的价值本体。此外，“十五五”规划还进一步提出“坚持惠民生和促消费、投资于物和投资于人紧密结合”，推动民生投入从传统的再分配范畴扩展为赋能中国式现代化的内生动力源泉。

In the process of planning formulation, our Party has always paid attention to listening to public opinion and gathering popular wisdom. General Secretary Xi Jinping emphasized, “The formulation of the five-year plan involves all aspects of economic and social development and is closely related to the production and life of the people. It is necessary to unify strengthening top-level design with insisting on seeking advice from the people, and encourage the broad masses of the people and all sectors of society to offer suggestions and ideas in various ways.” [n] For example, from May 20 to June 20, 2025, the formulation work for the 15th Five-Year Plan continued the practice of the 14th Five-Year Plan’s “online policy consultation,” widely soliciting opinions and suggestions from all sectors of society, ultimately receiving a total of over 3.11 million pieces of advice. It can be said that the drafting work of the five-year plan is “another vivid practice of promoting intra-Party democracy and whole-process people’s democracy.” [n] These vivid practices, which interpret putting the people first through concrete actions, fully demonstrate our Party’s firm adherence to the people-centered development philosophy, its practical guarantee of the people’s right to development, its high respect for the people’s principal position, and its resolute defense of the people’s fundamental interests.

在规划编制过程上，我们党也始终注重倾听民意、汇聚民智。习近平总书记强调，“五年规划编制涉及经济社会发展方方面面，同人民群众生产生活息息相关，需要把加强顶层设计和坚持问计于民统一起来，鼓励广大人民群众和社会各界以各种方式建言献策”。譬如，2025年5月20日至6月20日，“十五五”规划编制工作延续“十四五”规划“网络问策”的做法，广泛征集社会各界意见建议，最终累计收到各类建言311万余条。可以说，五年规划的起草工作，“是发扬党内民主和全过程人民民主的又一次生动实践”。这些以具体行动诠释人民至上的生动实践充分彰显了我们党对以人民为中心的发展思想的坚定遵循、对人民发展权利的切实保障、对人民主体地位的高度尊崇以及对人民根本利益的坚决维护。

(B) The Deployment Element: Upholding the Coordinated Advancement of Overall Progress and Breakthroughs in Key Areas

（二）部署要素：坚持整体推进与重点突破的协同并进

Adhering to the “comprehensiveness” of the theory of two points and the theory of emphasis is a scientific application of systematic thinking. In the five-year plan, “deployments,” as the specific arrangements of the state’s medium- to long-term development goals in various fields, occupy the core length of the planning outline. The layout thinking they present not only achieves overall coverage of all development fields at the macro level but also focuses on guiding the entire development system towards the overall optimal goal through breakthroughs in key areas, achieving the unity of overall progress and breakthroughs in key areas.

坚持两点论和重点论的“全面性”是对系统思维的科学运用。在五年规划中，“部署”作为国家对中长期发展目标在各领域的具体安排，占据了规划纲要的核心篇幅。它所呈现的布局思路，既在全局层面实现了对各发展领域的整体覆盖，又注重以重点领域的率先突破引导整个发展系统朝着整体最优目标演进，实现整体推进与重点突破相统一。

First, the planning content insists on focusing on the overall situation and advancing comprehensively.

第一，规划内容坚持着眼全局、整体推进。

“For a system to become a system, it must first possess wholeness.” The compilation of a plan must “emphasize the systemic nature, wholeness, and coordination of objectives, tasks, policies, and measures.” The content of a five-year plan is not confined to a single field but comprehensively covers all dimensions of economic and social development. Taking the outline of the 15th Five-Year Plan as an example, its main content consists of 18 parts and 62 chapters, systematically elaborating on China’s key tasks in areas such as economic development, social welfare, cultural prosperity, opening up, ecological civilization, social governance, national security, agricultural and rural modernization, and national defense and military construction during 2026–2030. It essentially encompasses all aspects of reform, development, and stability; domestic and foreign affairs, national defense; and governance of the Party, the state, and the military, reflecting the comprehensiveness and wholeness of the national strategic layout.

“系统之所以成为系统，首先就必须要有整体性。”规划的编制要“注重目标任务和政策举措的系统性整体性协同性”。五年规划的内容并非局限于单一领域，而是全面覆盖经济社会发展各个维度。以“十五五”规划《纲要》为例，其主体内容共18篇、62章，系统阐述了2026年—2030年间我国在经济发展、社会民生、文化繁荣、对外开放、生态文明、社会治理、国家安全、农业农村现代化、国防和军队建设等领域的重点任务，基本囊括了改革发展稳定、内政外交国防、治党治国治军的方方面面，体现出国家战略布局的全面性与整体性。

Second, the content of the plan insists on driving overall improvement through breakthroughs in key areas.

第二，规划内容坚持以重点突破带动整体跃升。

General Secretary Xi Jinping has emphasized: “In any work, we must address both the ‘two-point theory’ and the ‘key-point theory.’ Without distinguishing primary from secondary issues and making no differentiation, grabbing at everything like a man with his eyebrows and beard on fire, we cannot do the work well.” In his explanatory remarks on the proposal for the 14th Five-Year Plan, General Secretary Xi Jinping again stressed that plan compilation should “focus on prominent problems and obvious shortcomings, and respond to the demands and expectations of the people.” Looking at the five-year plans since the New Era, this logic is clearly visible: the 12th Five-Year Plan insisted on taking the transformation of the economic development model as the main thread, effectively driving sustained and healthy development across all economic and social fields through strategic adjustment of the economic structure; the 13th Five-Year Plan focused on the baseline task of completing the building of a moderately prosperous society in all respects, using the historic victory in the fight against poverty to drive an overall leap in the level of social development; the 14th Five-Year Plan insisted on deepening supply-side structural reform as the main thread, striving to unblock bottlenecks in the economic cycle, laying a solid foundation for comprehensively building a modern socialist country; the 15th Five-Year Plan emphasizes coordinating the expansion of domestic demand with deepening supply-side structural reform, accelerating the cultivation of new drivers of growth, and integrating high-quality development throughout the entire process of economic and social development, laying a solid foundation and making comprehensive efforts to basically achieve socialist modernization. Guided by this systemic thinking of planning one domain from the overall situation and serving the overall situation with one domain, each five-year plan, in its strategic layout, focuses on proceeding from the big picture, comprehensively understanding and accurately grasping the principal contradiction and the principal aspect of the contradiction in development, thereby forming a leverage effect of “breaking through one point and activating the whole,” using points to drive areas and using parts to drive the whole.

习近平总书记强调：“在任何工作中，我们既要讲两点论，又要讲重点论，没有主次，不加区别，眉毛胡子一把抓，是做不好工作的。”在关于“十四五”规划《建议》的说明中，习近平总书记再次强调，规划编制要“聚焦突出问题和明显短板，回应人民群众诉求和期盼”。纵观新时代以来的五年规划，这一逻辑清晰可见：“十二五”规划坚持以转变经济发展方式为主线，通过推动经济结构战略性调整，有效带动经济社会各领域的持续健康发展；“十三五”规划聚焦全面建成小康社会的底线任务，以脱贫攻坚战的历史性胜利带动社会整体发展水平的跃升；“十四五”规划坚持以深化供给侧结构性改革为主线，着力打通经济循环堵点，为全面建设社会主义现代化国家奠定坚实基础；“十五五”规划强调统筹扩大内需和深化供给侧结构性改革，加快培育新动能，将高质量发展贯穿经济社会发展的全过程，为基本实现社会主义现代化夯实基础、全面发力。在这种从全局谋划一域、以一域服务全局的系统思维指引下，每一个五年规划在战略布局中，都注重从大局出发，全面认识并准确把握发展中的主要矛盾和矛盾的主要方面，进而形成“突破一点、激活全盘”的杠杆效应，以点带面、以局部带动全局。

(3) Indicator Elements: Insisting on the Complementarity of Anticipated and Binding Indicators

（三）指标要素：坚持预期性指标和约束性指标的相辅相成

“Indicators” are the concrete manifestation of the strategic intent of a five-year plan and the core basis for goal setting and performance evaluation in plan compilation and implementation. Since the 11th Five-Year Plan, China has innovatively divided the quantitative indicators of five-year plans into two major types: anticipated and binding. These two types of indicator elements are interrelated, forming a complementary and coupled organic whole in function, jointly promoting the sustained and healthy development of the economic and social system. For example, in the 15th Five-Year Plan, indicators such as “GDP growth,” “growth in全社会研发经费投入增长” [n], and “average life expectancy” are anticipated indicators. This type of indicator places more emphasis on playing a guiding and incentivizing role, relying mainly on the autonomous behavior of market entities for realization. In the process of achieving such indicators, the government’s role is more that of an environment creator and policy guide, stimulating the vitality of market entities by creating a stable and predictable macro-policy environment, improving market systems and mechanisms, and optimizing factor allocation, so that development goals become a common social consensus and conscious pursuit. In contrast, indicators such as “reduction in carbon dioxide emissions per unit of GDP,” “proportion of good-quality water bodies,” and “comprehensive grain production capacity” are binding indicators. This type of indicator places greater emphasis on compulsion and enforceability, and their achievement requires governments at all levels to ensure compliance through administrative means, financial investment, strict supervision, and implementation mechanisms. In the setting of plan indicators, anticipated and binding indicators are usually used in combination to form a complementary policy synergy. For instance, in the “welfare” category of the 15th Five-Year Plan outline, both anticipated indicators such as “urban surveyed unemployment rate” and “growth in per capita disposable income of residents” and a binding indicator such as “average years of education for the working-age population” are set.

“指标”是五年规划战略意图的具体呈现，是规划编制与实施中目标确立与成效评估的核心依据。自“十一五”规划以来，我国创新性地将五年规划的量化指标划分为预期性和约束性两大类型。这两类指标要素相互关联，在功能上形成互补耦合的有机整体，共同推动经济社会系统的持续健康发展。比如，在“十五五”规划中，“国内生产总值增长”“全社会研发经费投入增长”“人均预期寿命”等指标属于预期性指标，这类指标更侧重发挥引导和激励作用，主要依靠市场主体的自主行为来实现。在此类指标的实现过程中，政府的角色定位更多是环境创设者和政策引导者，通过营造稳定可预期的宏观政策环境、完善市场体制机制、优化要素配置来激发市场主体活力，使发展目标成为社会普遍共识和自觉追求。而“单位GDP二氧化碳排放降低”“优良水体比例”“粮食综合生产能力”等指标属于约束性指标，这类指标更加强调强制性和执行力，指标的完成需要各级政府通过行政手段、财政投入、严格监管和落实机制来确保。在规划指标的设定中，预期性指标与约束性指标通常被组合运用，以形成功能互补的政策合力。如“十五五”规划《纲要》中“民生福祉”类的指标既设定了“城镇调查失业率”“居民人均可支配收入增长”等预期性指标，又设定了“劳动年龄人口平均受教育年限”这一约束性指标。

The synergistic structure of anticipated and binding indicators, complementing and promoting each other, facilitates their organic coupling in function and the overall optimization of the system. On the one hand, binding indicators provide clear baselines and boundary conditions for policy implementation, effectively preventing problems such as resource and environmental depletion and social equity imbalances caused by market behavior excessively pursuing short-term interests, ensuring the realization of public interests and social welfare, and providing necessary stability guarantees for system operation. On the other hand, anticipated indicators provide direction and impetus for policy implementation, effectively alleviating problems such as insufficient endogenous momentum that may arise during the development process, stimulating the initiative and creativity of policy implementers, and injecting inexhaustible momentum into system operation. This indicator structure, combining “hard constraints” with “soft guidance,” organically integrates the efficiency of the market mechanism with the strategic and long-term nature of national planning, ensuring the internal balance of the system in the process of dynamic development while driving the entire planning system toward higher quality and more sustainable development in a spiral upward trajectory.

预期性指标和约束性指标相辅相成、相互促进的协同结构，促成了二者在功能上的有机耦合与系统的整体优化。一方面，约束性指标为政策执行提供了明确的底线和边界条件，有效避免了市场行为过度追求短期利益而引发的资源环境透支、社会公平失衡等问题，确保了公共利益和社会福祉的实现，为系统运行提供必要的稳定性保障；另一方面，预期性指标为政策执行提供了方向和动力，有效缓解了发展进程中可能出现的内生动力不足等问题，激发了政策执行者的积极性和创造力，为系统运行注入不竭动力。这种“硬约束”与“软引导”相结合的指标结构，将市场机制的效率与国家规划的战略性、长远性有机结合起来，既确保了系统在动态发展过程中的内在平衡，又推动了整个规划系统向着更高质量、更可持续的方向实现螺旋式上升。

(4) Means Elements: Insisting on Promoting the Organic Combination of a Promising Government and an Effective Market

（四）手段要素：坚持推动有为政府和有效市场的有机结合

“Means” are the driving force for achieving plan objectives and an important way to guide and optimize resource allocation. General Secretary Xi Jinping has pointed out: “On the issue of the role of the market and the role of the government, we must apply dialectics and the ‘two-point theory.’ Both the ‘invisible hand’ and the ‘visible hand’ must be used well, striving to form a pattern where the role of the market and the role of the government are organically unified, mutually complementary, mutually coordinated, and mutually reinforcing, to promote sustained and healthy economic and social development.” Since China formally established the goal of reforming the socialist market economy system in 1992, each successive five-year plan (or program) has taken the improvement of the socialist market economy system as a core content, providing specific planning and long-term deployment. For example, the 14th Five-Year Plan clearly states “upholding and improving the basic socialist economic system, giving full play to the decisive role of the market in resource allocation, better playing the role of the government, and promoting a better combination of an effective market and a promising government”; the 15th Five-Year Plan lists “adhering to the combination of an effective market and a promising government” as one of the principles that must be followed for economic and social development during the 15th Five-Year Plan period, and emphasizes “accelerating the construction of a high-level socialist market economy system to enhance the momentum for high-quality development.” From the evolution of policies, it can be seen that China has consistently adhered to the reform direction of organically combining and synergizing the market and the government in its top-level design.

“手段”是规划目标得以实现的驱动力量，是引导和优化资源配置的重要方式。习近平总书记指出：“在市场作用和政府作用的问题上，要讲辩证法、两点论，‘看不见的手’和‘看得见的手’都要用好，努力形成市场作用和政府作用有机统一、相互补充、相互协调、相互促进的格局，推动经济社会持续健康发展。”自1992年我国正式确立社会主义市场经济体制改革目标以来，历次五年规划（计划）都将完善社会主义市场经济体制作为核心内容，予以具体规划和长远部署。比如，“十四五”规划明确提出“坚持和完善社会主义基本经济制度，充分发挥市场在资源配置中的决定性作用，更好发挥政府作用，推动有效市场和有为政府更好结合”；“十五五”规划将“坚持有效市场和有为政府相结合”列为“十五五”时期经济社会发展必须遵循的原则之一，并强调要“加快构建高水平社会主义市场经济体制，增强高质量发展动力”。从政策的演进脉络中可以看出，我国在顶层设计中始终坚持市场与政府有机结合、协同发力的改革方向。

General Secretary Xi Jinping has emphasized: “Practice has proven that medium- and long-term development plans can both give full play to the decisive role of the market in resource allocation and better play the role of the government.” On the one hand, the five-year plan demonstrates the governance effectiveness of a promising government and serves as the strategic guidance of a promising government for economic and social development. The important role of a promising government is reflected in its aim of “overall system optimization,” actively filling gaps in areas of market failure through macroeconomic regulation, institutional supply, and strategic guidance, playing a leading role in major strategic tasks, and creating a stable and predictable development environment by formulating innovation support and industrial support policies. On the other hand, the five-year plan promotes the construction of an effective market. The five-year plan uniformly releases the strategic tasks, main objectives, and key deployments of the Party and the state, providing clear policy expectations and development path guidance for various market entities. At the same time, the five-year plan also strives to promote the interconnection of market infrastructure, break down regional barriers and institutional obstacles, accelerate the construction of a unified national market, and better play the decisive role of the market in resource allocation.

习近平总书记强调：“实践证明，中长期发展规划既能充分发挥市场在资源配置中的决定性作用，又能更好发挥政府作用。”一方面，五年规划彰显了有为政府的治理效能，是有为政府对经济社会发展的战略引领。有为政府的重要作用体现在以“整体系统优化”为目标，通过宏观调控、制度供给与战略引导，在市场失灵的领域主动补位，在重大战略任务中发挥主导作用，通过制定创新支持、产业支持政策等，营造稳定可预期的发展环境。另一方面，五年规划推进了有效市场的建构。五年规划将党和国家的战略任务、主要目标、重点部署统一发布，为各类市场主体提供了清晰的政策预期与发展路径指引。与此同时，五年规划还着力推进市场基础设施的互联互通，破除区域壁垒和制度性障碍，加快构建全国统一大市场，更好发挥市场在资源配置中的决定性作用。

II. Deploying the Five-Year Plan within the Effective Coordination of the Planning System

二、在规划体系的有效衔接中部署五年规划

The effective articulation of the planning system is the basic support for the layout of planning content and the actions of planning subjects. General Secretary Xi Jinping has pointed out, “Things are universally connected; things and their various elements influence and condition each other, and the whole world is an interconnected whole as well as an interacting system.” As the scale of national development and the scope of goals and tasks have continuously expanded, China has gradually constructed a planning system with the national development plan as its core. The various subsystems within this planning system are nested within and deeply interwoven with each other, forming, over a long period of evolution, close interactive relationships and a dynamic equilibrium, exhibiting a distinct systematic thinking characteristic of hierarchy and interconnectedness. Specifically, the five-year plan achieves orderly articulation between existing plans and subsequent plans in terms of temporal sequence; close articulation between short-term goals and long-term goals in terms of objectives; vertical articulation among plans at the national, provincial, and city/county levels in terms of hierarchy; and horizontal articulation among development plans, spatial plans, special plans, and regional plans in terms of category.

规划体系的有效衔接，是规划内容布局与规划主体行动的基本支撑。习近平总书记指出，“事物是普遍联系的，事物及事物各要素相互影响、相互制约，整个世界是相互联系的整体，也是相互作用的系统”。随着国家发展体量、目标任务的不断拓展，我国逐渐构建起以国家发展规划为核心的规划体系。这一规划体系中的各个子系统相互嵌套、深度交织，在长期演进中形成了紧密的互动关系和动态平衡，展现出鲜明的层次性和关联性的系统思维特质。具体而言，五年规划在时序上实现了既有规划与后续规划的有序衔接；在目标上实现了短期目标与长期目标的紧密衔接；在层级上实现了国家、省、市县各级规划的纵向衔接；在类别上实现了发展规划、空间规划、专项规划及区域规划的横向衔接。

(I) In terms of temporal sequence: coordinating the articulation of existing plans and subsequent plans to ensure the coherence and continuity of strategic layout

（一）时序上：统筹衔接既有规划与后续规划，确保战略布局的连贯接续

“Chinese-path modernization is advanced in stages and in different fields; realizing the development goals of each stage and implementing the development strategies of each field also requires top-level design.” The formulation and implementation of five-year plans in the New Era is essentially an institutional practice of decomposing the strategic goals of Chinese-path modernization into stages and precisely grounding them. Each five-year plan is always anchored to the grand blueprint of Chinese-path modernization, focusing both on organic articulation with the preceding plan to ensure the continuous deepening of the development process on the existing foundation, and on clearly proposing the guiding principles, basic tenets, and key tasks for economic and social development in the coming period based on new circumstances and new requirements, thereby clarifying the strategic direction for subsequent economic and social development.

“中国式现代化是分阶段、分领域推进的，实现各个阶段发展目标、落实各个领域发展战略同样需要进行顶层设计。”新时代五年规划的编制与实施，实质上是将中国式现代化的战略目标进行阶段化分解和精准化落地的制度性实践。每一个五年规划都始终锚定中国式现代化的宏伟蓝图，既注重与前一个规划的有机衔接，确保发展进程在既有基础上不断深化，又根据新形势新要求，明确提出未来一段时期经济社会发展的指导方针、基本原则和重点任务，从而明确此后经济社会发展的战略方向。

The five-year plans since the New Era possess inherent articulation in their guiding ideologies, a feature particularly evident in the inheritance relationship between the 14th Five-Year Plan and the 15th Five-Year Plan. The 14th Five-Year Plan established a guiding ideology of “four ‘withs’,” namely, “taking promoting high-quality development as the theme, taking deepening supply-side structural reform as the main line, taking reform and innovation as the fundamental driving force, and taking meeting the people’s ever-growing needs for a better life as the fundamental purpose.” On this basis, the 15th Five-Year Plan further expanded this into “five ‘withs’,” retaining the three core elements of “taking promoting high-quality development as the theme,” “taking reform and innovation as the fundamental driving force,” and “taking meeting the people’s ever-growing needs for a better life as the fundamental purpose,” while adding two new elements: “adhering to taking economic construction as the center” and “taking comprehensive and strict governance of the Party as the fundamental guarantee.” This adjustment both continues the logical core of the previous guiding ideology system and responds to the new requirements for the guiding ideology of national development posed by the new development stage, demonstrating the organic articulation and deepening of connotation in the guiding ideology’s evolution over time. Furthermore, the coordination and articulation of existing and subsequent plans in the five-year plan is also reflected in the progressive layering of strategic goals and key tasks. From the 12th Five-Year Plan to the 15th Five-Year Plan, the strategic layout of China’s five-year plan outlines in important areas such as industrial system construction, agricultural and rural development, coordinated regional development, green and low-carbon transformation, improvement of people’s livelihoods, and national defense and military construction has consistently maintained a high degree of continuity. It can be said that the high degree of consistency in content layout, guiding ideology, and other aspects across China’s five-year plans in different periods has effectively ensured the coherence and continuity of the national strategic layout.

新时代以来的五年规划在指导思想上具有内在衔接性，这一特征在“十四五”与“十五五”规划的承继关系中尤为显著。“十四五”规划确立了“四个以”，即“以推动高质量发展为主题，以深化供给侧结构性改革为主线，以改革创新为根本动力，以满足人民日益增长的美好生活需要为根本目的”的指导思想。在此基础上，“十五五”规划进一步将其扩展为“五个以”，在保留“以推动高质量发展为主题，以改革创新为根本动力，以满足人民日益增长的美好生活需要为根本目的”三项核心内容的同时，新增“坚持以经济建设为中心”“以全面从严治党为根本保障”两项内容。这一调整既延续了以往指导思想体系的逻辑内核，也顺应了新发展阶段对国家发展指导思想提出的新要求，展现出指导思想在时序演进中的有机衔接与内涵深化。此外，五年规划对既有规划与后续规划的统筹衔接还反映在战略目标和重点任务的层层递进之中。从“十二五”规划到“十五五”规划，我国五年规划《纲要》在产业体系构建、农业农村发展、区域协调发展、绿色低碳转型、民生福祉改善、国防和军队建设等重要领域的战略布局，始终保持着高度连贯性。可以说，我国各时期五年规划在内容布局、指导思想等方面的高度一致，有力保障了国家战略布局的连贯接续。

(II) In terms of objectives: coordinating the articulation of short-term plans and long-term goals to achieve a high degree of unity in the pace of development

（二）目标上：统筹衔接短期计划与长期目标，实现发展步调的高度统一

For the grand blueprint of the entire modernization drive, each five-year plan is a part; yet, compared to various short-term plans, each five-year plan constitutes the overall situation that guides the direction. This dialectical relationship determines the articulation logic of the five-year plan: when the five-year plan serves as the overall situation, it must focus on guiding and articulating with short-term plans; when the five-year plan occupies a partial position, it must focus on appropriately combining immediate and long-term interests.

对于整个现代化建设的宏伟蓝图来说，每个五年规划都是局部，而相较于各类短期计划而言，每个五年规划则构成了统领方向的全局。这一辩证关系决定了五年规划的衔接逻辑：当五年规划作为全局时，要注重对短期计划的引领和衔接，而当五年规划居于局部地位时，则要注重把目前和长远的利益恰当地结合起来。

On the one hand, as the most important medium- and long-term plan guiding China’s economic and social development, the effective implementation of the five-year plan is inseparable from organic articulation with short-term plans. When formulating a five-year plan, it is difficult to make completely accurate predictions for all future variables; therefore, it is necessary to rationally decompose the overall goals established by the plan into operable annual arrangements according to the tasks of each year and the actual development situation. Taking the strategic task of “follow-up support for poverty alleviation relocation” in the 14th Five-Year Plan as an example, it shows a clear progressive path in the annual plans for national economic and social development: from the 2021 annual plan focusing on “improving supporting infrastructure in centralized resettlement areas for poverty alleviation relocation,” to 2022 focusing on promoting “the integration of large-scale resettlement areas and urban resettled populations into new urbanization construction,” 2023 continuing with “promoting the integration of large-scale resettlement areas into new urbanization construction,” 2024 emphasizing “supporting the sustainable development of centralized resettlement areas,” and 2025 clarifying the development direction of “focusing on large and medium-sized centralized resettlement areas, solidly carrying out follow-up support work for poverty alleviation relocation.” This step-by-step “plan relay” not only reflects the continuous promotion and dynamic measurement of the major deployments of the five-year plan by the annual plans but also enhances the adaptability and flexibility of plan implementation while ensuring a high degree of unity between the practice of each year and the main line of the five-year plan.

一方面，五年规划作为指导我国经济社会发展最重要的中长期规划，其有效实施离不开与短期计划的有机衔接。在编制五年规划时，由于难以对未来的所有变量作出完全准确的预判，因此有必要将规划确立的总体目标，按照各年度任务与实际发展情况，合理分解为可操作的年度安排。以“十四五”规划中“易地扶贫搬迁后续帮扶”的战略任务为例，其在国民经济和社会发展的年度计划中展现出清晰的推进路径：从2021年的年度计划聚焦“完善易地扶贫搬迁集中安置区配套基础设施”，到2022年着力推进“大型搬迁安置区和进城安置群众融入新型城镇化建设”，2023年接续“推动大型安置区融入新型城镇化建设”，到2024年强调“支持集中安置区可持续发展”，再到2025年明确“以大中型集中安置区为重点，扎实做好易地搬迁后续帮扶工作”的发展方向，这一循序渐进的“计划接力”，不仅体现出年度计划对五年规划重大部署的持续推进与动态度量，更在确保每年度实践与五年规划的主线高度统一的同时，增强了规划执行的适应性与灵活性。

On the other hand, the five-year plan also looks to the long term, focusing on coordination and articulation with long-term goals. At specific historical stages, in order to more closely articulate the five-year plan with the strategic goals of achieving modernization, our Party, while formulating the five-year plan, also formulates longer-term perspective goals. For example, at the historical juncture of the Two Centenary Goals [12]12 The Two Centenary Goals are the goals of building a moderately prosperous society in all respects by the centenary of the CPC (founded in 1921) and building a modern socialist country that is prosperous, strong, democratic, culturally advanced, and harmonious by the centenary of the PRC (founded in 1949)., the Fifth Plenary Session of the 19th Central Committee [13]13 The Fifth Plenary Session of the 19th Central Committee of the CPC was held in October 2020. coordinated the consideration of the five-year plan and the perspective goals, simultaneously formulating the 14th Five-Year Plan and the long-range goals for 2035. The long-range goals for 2035 frame the overall objectives for China’s economic and social development in the next 15 years in areas such as scientific and technological innovation, national governance, national defense and the military, and opening up to the outside world, providing a clear frame of reference for the next three five-year plans. Furthermore, the five-year plan is always anchored to the grand goal of achieving socialist modernization. General Secretary Xi Jinping has pointed out, “From the First Five-Year Plan to the 14th Five-Year Plan, the consistent theme is building our country into a modern socialist country.” Since the founding of New China, the Party has successively formulated and implemented 14 five-year plans (plans). Each five-year plan (plan) is a concrete implementation of the modernization goal at a specific development stage, and the completion of each five-year plan (plan) marks a new step forward for Chinese-path modernization.

另一方面，五年规划也着眼于长远，注重与长期目标的统筹衔接。在特定历史阶段，为了将五年规划与实现现代化的战略目标更加紧密地衔接起来，我们党在编制五年规划的同时，还制定更长时段的远景目标。譬如，在“两个一百年”奋斗目标的历史交汇点上，党的十九届五中全会将五年规划与远景目标统筹考虑，同时制定了“十四五”规划和2035年远景目标。2035年远景目标框定了未来15年中国经济社会发展在科技创新、国家治理、国防军队、对外开放等领域的总体目标，为未来三个五年规划提供了明确的参照系。此外，五年规划始终锚定实现社会主义现代化的宏伟目标。习近平总书记指出：“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。”新中国成立以来，党已陆续制定并实施了14个五年规划（计划），每一个五年规划（计划）都是现代化目标在特定发展阶段的具体落实，每一个五年规划（计划）的完成，都标志着中国式现代化迈上了新台阶。

(III) In terms of hierarchy: coordinating the articulation of plans at the national, provincial, and city/county levels to promote synergistic linkage across vertical levels

（三）层级上：统筹衔接国家、省、市县各级规划，促进纵向层级的协同联动

The planning system is a complex system of crisscrossing relationships. Its vertical structure consists of plans at the national, provincial, and city/county levels. Plans at each level are closely related yet have their own emphases, together forming a complete chain for the top-down transmission, decomposition, and implementation of strategic goals. In April 2025, when presiding over a symposium on economic and social development during the 15th Five-Year Plan period for some provinces, autonomous regions, and municipalities, General Secretary Xi Jinping emphasized, “When regions plan their economic and social development for the 15th Five-Year Plan period, they must position themselves precisely within the national overall situation and strengthen planning articulation.” This important exposition not only provides the fundamental guidance for provinces and cities to scientifically draw their future development blueprints but also once again highlights the significance of strengthening the interconnectedness among plans at the national, provincial, and city/county levels.

规划体系是一个纵横交错的复杂系统。其纵向结构由国家、省、市县级规划构成，各级规划间既紧密关联又各有侧重，共同构成了一个战略目标自上而下传导、分解与落实的完整链条。2025年4月，习近平总书记在主持召开部分省区市“十五五”时期经济社会发展座谈会上强调，“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”。这一重要论述，不仅为各省市科学擘画未来发展蓝图提供了根本遵循，也再次凸显了加强国家、省、市县各级规划之间关联性的重要意义。

There is a clear division of labor and coordinated linkage among plans at the national, provincial, and city/county levels, forming a planning system that is vertically connected and progressively layered. National-level plans occupy the top tier, focusing on strategic and overall planning for the country's economic and social development over the next five years; their emphasis lies in indicating the direction of development, not in stipulating specific matters. Taking the second chapter, "Building a Modern Industrial System and Consolidating the Foundation of the Real Economy," of the Outline of the 15th Five-Year Plan as an example, the central level makes macro-level, overall arrangements from four aspects: "optimizing and upgrading traditional industries," "cultivating and expanding emerging industries and future industries," "promoting high-quality and efficient development of the service industry," and "building a modern infrastructure system," leaving ample room for provincial, autonomous regional, and municipal governments to implement concretely. Provincial-level plans play a key role in linking the upper and lower levels. On the one hand, they "link upward" in terms of development concepts, expected indicators, and target implementation, ensuring that strategic tasks are precisely undertaken within the provincial domain; on the other hand, they "link downward" by combining the province's resource endowments, development foundation, and regional positioning, transforming national macro requirements into meso-level strategies suited to provincial realities, and coordinating the development of cities and counties within the province to avoid redundant construction and disorderly competition. Against the backdrop where the Outline of the 14th Five-Year Plan set a binding target for national forest coverage at 24.1%, Henan Province, when compiling its own 14th Five-Year Plan, incorporated the main indicators of the national development plan into its own indicator system. Fully considering that the province's forest coverage had already reached 25.07% in 2020, it further set a development target for Henan Province's forest coverage to exceed 26% by 2025, and decomposed this target level by level to the city and county levels for implementation. City and county-level plans, as the grassroots tentacles and ultimate落脚点 [n14] of the system, have the core mission of refining the relatively principled requirements of national and provincial plans into operable and assessable specific projects and plans for their localities, thereby transforming the grand blueprint into a tangible reality that the people can feel and benefit from. Taking the "Proposal" of the 15th Five-Year Plan of Hangzhou City, Zhejiang Province, as an example, in terms of improving the quality of people's lives, the city proposed a series of executable and concrete measures, such as "continuously expanding the size of the middle-income group, polishing the 'Hangzhou, No Wage Arrears' brand," and "actively developing public welfare and charitable undertakings, creating the 'Charitable City Hangzhou' charity brand."

国家、省、市县各层级规划之间分工明确、协同联动，形成了纵向衔接、层层递进的规划体系。国家级规划居于顶层，着眼于对国家未来五年经济社会发展进行战略性、全局性谋划，其重点在于指明发展方向，而不涉及规定具体事项。以“十五五”规划《纲要》的第二篇“建设现代化产业体系，巩固壮大实体经济根基”为例，中央层面主要从“优化提升传统产业”“培育壮大新兴产业和未来产业”“促进服务业优质高效发展”“构建现代化基础设施体系”四个方面作出宏观、整体安排，为各省、自治区、直辖市政府的具体落实留下了充足空间。省级规划则扮演着承上启下的关键角色。它既在发展理念、预期指标、目标执行等方面“承上”，确保战略任务在省域范围内得到精准承接，又结合本省资源禀赋、发展基础与区域定位“启下”，将国家宏观要求转化为符合省情实际的中观策略，并统筹协调省内各市县的发展，避免重复建设和无序竞争。在“十四五”规划《纲要》将全国森林覆盖率这一约束性目标设定为24.1%的背景下，河南省在编制本省“十四五”规划时，将国家发展规划的主要指标纳入本省的指标体系之中，在充分考虑到2020年本省森林覆盖率已达25.07%的既有基础，进一步设定了2025年河南省森林覆盖率大于26%的发展目标，并将这一目标逐级分解至市县级层面予以落实。市县级规划作为体系的基层触手和最终落脚点，其核心使命是将国家和省级规划中相对原则性的要求，细化为本地区可操作、可考核的具体项目和计划，使宏伟蓝图最终转化为人民群众可感可及的现实图景。以浙江省杭州市“十五五”规划《建议》为例，在提升人民生活品质方面，该市便提出了“不断扩大中等收入群体规模，擦亮‘杭州无欠薪’品牌”“积极发展公益慈善事业，打造‘善城杭州’慈善品牌”等一系列可执行的、具体的举措。

(4) By Category: Coordinating and Linking Development, Spatial, Specialized, and Regional Plans, Strengthening the Guiding Function of Development Plans

（四）类别上：统筹衔接发展、空间、专项及区域规划，强化发展规划的导向功能

The national planning system is "an organic combination of various types and levels of plans that are conceived from different domains, expressed from different perspectives, and whose contents are mutually connected, complementary, and influential." The planning system includes not only vertical "three-level" plans but also horizontal "four-category" plans. The so-called "four-category" plans refer to national development plans, territorial space plans, specialized plans, and regional plans. Within this system architecture, national-level specialized plans, regional plans, and spatial plans must all be formulated based on the national development plan, thereby ensuring the internal consistency and strategic synergy of the entire planning system. For example, centering on the major deployment of "optimizing the modern industrial system" in the Outline of the 13th Five-Year Plan, the state formulated the "13th Five-Year Plan for the Development of National Strategic Emerging Industries" as a key specialized plan, and issued a supporting package of six specialized plans, including the "Smart Manufacturing Development Plan (2016–2020)" and the "Informatization and Industrialization Integration Development Plan (2016–2020)." These plans worked in concert from multiple dimensions such as smart manufacturing, integration of informatization and industrialization, consumer goods upgrading, marine economy, and domestic and foreign trade, refining the top-level design of the 13th Five-Year Plan into specific goals and tasks for particular fields, thereby promoting the construction of a modern industrial system that is complete, advanced, and secure.

国家规划体系是“从不同领域谋划、不同角度表述，内容相互衔接、相互补充、相互影响的各级各类规划的有机结合体”。规划体系中不仅包含纵向的“三级”规划，也涵盖了横向的“四类”规划。所谓“四类”规划，即国家发展规划、国土空间规划、专项规划和区域规划。在这一系统架构中，国家级专项规划、区域规划、空间规划，均须以国家发展规划为依据进行编制，从而确保整个规划体系的内在一致性与战略协同性。比如，围绕“十三五”规划《纲要》中“优化现代产业体系”的重大部署，国家就制定了《“十三五”国家战略性新兴产业发展规划》作为重点专项规划，并配套出台了包括《智能制造发展规划（2016—2020年）》《信息化和工业化融合发展规划（2016—2020年）》等在内的六项专项规划，从智能制造、信息化和工业化融合、消费品升级、海洋经济、内外贸易等多个维度协同发力，将“十三五”规划的顶层设计，细化分解为特定领域的具体目标任务，以此推动构建完整性、先进性与安全性兼备的现代化产业体系。

At the same time, the strategic guiding role of the 13th Five-Year Plan was also fully reflected at the regional level. In 2019, the Central Committee of the CPC and the State Council successively promulgated major regional plans such as the "Outline of the Development Plan for the Guangdong-Hong Kong-Macao Greater Bay Area" and the "Outline of the Plan for the Integrated Development of the Yangtze River Delta Region." The introduction of these plans was precisely a deepening and refinement of the major deployment of "promoting coordinated regional development" in the 13th Five-Year Plan within specific regions. Furthermore, during the 14th Five-Year Plan period, the Ministry of Natural Resources led the compilation of China's first national-level territorial space plan to "integrate multiple plans into one" — the "National Territorial Space Planning Outline (2021–2035)" — which was issued and implemented by the Central Committee of the CPC and the State Council in October 2022. This plan, as a systematic implementation and deepening of the national development plan at the territorial space level, effectively undertook major strategic orientations from the 14th Five-Year Plan concerning main functional area positioning and ecological civilization construction, realizing the transformation of development goals into spatial layouts and the transmission of strategic tasks into land use controls.

与此同时，“十三五”规划的战略引领作用，在区域层面也得到了充分体现。2019年，中共中央、国务院先后颁布了《粤港澳大湾区发展规划纲要》《长江三角洲区域一体化发展规划纲要》等重大区域规划。这些规划的出台，正是对“十三五”规划中“推动区域协调发展”这一重大部署在特定区域的深化和细化。此外，“十四五”时期，由自然资源部牵头编制完成我国首部“多规合一”的国家级国土空间规划——《全国国土空间规划纲要（2021—2035年）》，于2022年10月由中共中央、国务院印发实施。该规划作为国家发展规划在国土空间层面的系统性落实与深化，有效承接了“十四五”规划中关于主体功能定位、生态文明建设等重大战略导向，实现了发展目标向空间布局的转化、战略任务向用地管控的传导。

In July 2024, the "Decision of the Central Committee of the Communist Party of China on Further Deepening Reform Comprehensively to Advance Chinese-Path Modernization," reviewed and approved by the Third Plenary Session of the 20th Central Committee of the CPC, explicitly stated that to improve the institutional system for national economic and social development planning, it is necessary to "give play to the strategic guiding role of the national development plan, strengthen the foundational role of territorial space planning, and enhance the supporting role of specialized plans and regional plans in implementation." This statement fundamentally clarifies the functional positioning and synergistic relationships among the various types of plans within the national planning system. Therefore, it is necessary to strengthen the leading role of the national development plan and enhance its guidance and binding force over other plans. On this basis, further promote the deepening of specialized plans along "sectoral lines," the refinement of regional plans along "territorial blocks," and the implementation of spatial plans on "land," facilitating the four categories of plans to complement each other's strengths in function and effectively connect in implementation. Together, they transform the grand blueprint for national development into an orderly practice that progresses in time, covers space, and penetrates all fields, ensuring that all types of plans share common goals and tasks while reflecting the planning characteristics of different localities and fields, achieving policy coherence as "one game of chess." [n15]

2024年7月，党的二十届三中全会审议通过的《中共中央关于进一步全面深化改革 推进中国式现代化的决定》明确提出，健全国家经济社会发展规划制度体系，要“发挥国家发展规划战略导向作用，强化国土空间规划基础作用，增强专项规划和区域规划实施支撑作用”。这一论述，从根本上厘清了国家规划体系中各类规划的功能定位与协同关系。因此，要强化国家发展规划的统领作用，增强国家发展规划对其他规划的指导性和约束力。在此基础上，进一步推动专项规划从“条”上进行深化、区域规划从“块”上予以细化、空间规划从“地”上加以落实，促进四类规划在功能上优势互补、在实施中有效衔接，共同将国家发展的宏伟蓝图转化为时间上递进、空间上覆盖、领域上贯通的有序实践，确保各类规划既有共同目标任务，又能体现各地、各领域的规划特色，实现政策贯通“一盘棋”。

III. Advancing the Five-Year Plan through the Synergistic Coordination of Planning Subjects

三、在规划主体的协同联动中推进五年规划

The synergistic coordination of planning subjects is an inevitable requirement for the layout of planning content and the connection of the planning system. Planning work is a dynamic cyclical process of formulation, implementation, and evaluation. In this process, formulation is the foundation, implementation is the key, and evaluation is the guarantee. Correspondingly, planning subjects also form a logically rigorous hierarchical structure at the system level, manifested sequentially as "formulation subjects—implementation subjects—evaluation subjects." Within this structure, formulation subjects are responsible for the creation of the plan, implementation subjects focus on advancing the process, and evaluation subjects are responsible for examining the effectiveness of execution.

规划主体的协同联动是规划内容布局和规划体系衔接的必然要求。规划工作是一个编制、实施、评估的动态循环过程。在此过程中，编制是基础，实施是关键，评估是保障。与此对应，规划主体在系统层面也形成了逻辑严谨的层级架构，依次表现为“编制主体—实施主体—评估主体”。在这一架构中，编制主体负责规划的制定，实施主体聚焦过程的推进，评估主体负责执行效果的检验。

(1) Formulation Subjects: The Party Proposes the "Proposal"—The Government Formulates the "Outline"—The People's Congress Reviews and Approves

（一）编制主体：党提出《建议》—政府编制《纲要》—人大审议批准

Since the New Era, under the centralized and unified leadership of the Party Central Committee, the formulation of China's five-year plans has gradually formed a mature and stable decision-making model. At the national level, the formulation of the five-year plan has established an institutionalized and standardized process and model: "the Party Central Committee proposes the 'Proposal' for the plan—the State Council formulates the 'Outline' of the plan—the National People's Congress reviews and approves it before it is announced and implemented to the public." Correspondingly, the formulation of five-year plans at the local level follows the basic procedure and convention: "the local Party committee proposes the 'Proposal' for the plan—the local people's government at various levels formulates the 'Outline' of the plan—the local people's congress at the corresponding level reviews and approves it before it is announced and implemented." In this process, the three formulation subjects—the Party, the government, and the People's Congress—based on their respective functional positions, have a clear division of labor while being mutually connected, forming a sequentially progressive and efficiently operating chain of plan formulation.

新时代以来，在党中央集中统一领导下，我国五年规划的编制逐步形成了成熟稳定的决策模式。从国家层面看，五年规划编制已建立起“党中央提出规划《建议》—国务院编制规划《纲要》—全国人大审查批准后向社会公布实施”的制度化、规范化流程和模式。相应地，地方层面的五年规划编制亦遵循“地方党委提出规划《建议》—地方各级人民政府编制规划《纲要》—地方各级人大审查批准后公布实施”的基本程序与惯例。在此过程中，党、政府与人大这三大编制主体基于各自职能定位，既分工明确又相互衔接，构成了时序递进、运行高效的规划编制链条。

The formulation of a five-year plan is essentially a process in which the Party’s strategic propositions are transformed into the will of the state through statutory procedures. Within this institutional arrangement, “the Party’s issuance of the Proposal” occupies a leading position and constitutes the logical starting point and fundamental guideline for the compilation of the five-year plan. General Secretary Xi Jinping has pointed out: “The Party Central Committee’s proposal is mainly about setting the general direction and determining the grand strategy.” When drafting the Proposal, leaders of the Party Central Committee or local Party committees personally preside over the establishment of a drafting group for the planning Proposal. Through various means such as mid-term evaluations and preliminary research, they concentrate the wisdom of the entire Party and society, and from a strategic height carry out top-level design concerning the guiding ideology, basic principles, main objectives, and major strategies for the country or locality over the next five years. This process not only deeply embeds the Party’s governing philosophy and strategic intentions into the overall framework of national economic and social development, effectively ensuring that the five-year plan consistently serves the long-term development of the country and the fundamental interests of the people, but also provides directional constraints and institutional foundations for the subsequent Outline, ensuring that the planning work always advances in the direction guided by the Party.

五年规划的编制，本质上是党的战略主张通过法定程序转化为国家意志的过程。在这一制度安排中，“党提出《建议》”居于统领地位，是五年规划编制的逻辑起点和根本遵循。习近平总书记指出：“党中央的建议主要是管大方向、定大战略的。”在编制《建议》时，党中央或地方党委领导亲自主持成立规划《建议》的起草组，通过中期评估、前期研究等多种方式，集中全党全社会智慧，从战略高度对国家或地方未来五年的指导思想、基本原则、主要目标和重大战略等进行顶层设计。这一过程不仅将党的执政理念与战略意图深度嵌入国民经济和社会发展的整体框架，有力保证了五年规划始终服务于国家长远发展和人民根本利益，还为后续《纲要》编制提供了方向性约束和制度性依据，确保规划编制工作始终沿着党指引的方向推进。

After the planning Proposal is discussed and adopted by a plenary session of the Central Committee or a local Party committee, the State Council or a local people’s government establishes a leading group for drafting the outline of the planning outline, taking the lead in organizing the drafting of the initial text of the outline. The entire compilation process places great emphasis on systemic coordination and pluralistic participation. On the one hand, attention is paid to leveraging the role of various regions and departments, and extensively soliciting opinions from all sides, especially from all sectors of society; on the other hand, while doing a good job in compiling national or local plans, work is simultaneously advanced on spatial plans and special plans, ensuring that all types and levels of plans support each other and are organically connected. It is precisely for this reason that on the day after the closing of the Fourth Plenary Session of the 20th Central Committee of the CPC, Li Qiang, member of the Standing Committee of the Political Bureau of the CPC Central Committee and Premier of the State Council, presided over a meeting of the leading group for drafting the outline of the State Council’s 15th Five-Year Plan. At the meeting, he emphasized that the drafting of the outline “should openly solicit opinions and suggestions from the public, and broadly understand social expectations, expert opinions, and grassroots experience,” and at the same time, “should strengthen overall coordination, do a good job in linking the compilation of special plans with the national development plan, guide localities to compile plans based on their comparative advantages, and form a scientific and organic planning system.”

规划《建议》经中央全会或地方党委全会讨论通过后，由国务院或地方人民政府成立规划纲要草案的编制工作领导小组，牵头组织开展纲要草案文本初稿的起草工作。整个编制过程高度重视系统协同与多元参与。一方面，注重发挥各地区、各部门的作用，广泛听取各方面特别是社会各界的意见；另一方面，在做好国家或地方规划的编制工作的同时，还要同步推进空间计划、专项规划的编制工作，确保各级各类规划相互支撑、有机衔接。正因此，在党的二十届四中全会闭幕的次日，中共中央政治局常委、国务院总理李强便主持召开了国务院“十五五”规划纲要草案编制工作领导小组会议。他在会上强调，纲要草案编制“要面向社会公众公开征集意见建议，广泛了解社会期盼、专家意见、基层经验等”，同时，“要加强统筹协调，做好专项规划编制与国家发展规划的衔接，指导地方立足比较优势编制规划，形成科学有机的规划体系”。

The draft planning outline is submitted to the National People’s Congress or a local people’s congress for deliberation and approval. Once adopted, it is published to society and enters the comprehensive implementation stage. Looking at the entire compilation process, the participating entities have clear hierarchies and well-defined powers and responsibilities, forming an efficient and coordinated governance closed loop. Among them, the Party Central Committee and local Party committees play the role of a stabilizing force in overall control and overall navigation. The planning Proposal they put forward fundamentally solves the governance problem in Western multi-party countries where plans are frequently changed and policies are difficult to sustain, providing a solid political guarantee and institutional support for “carrying out the blueprint to the end.” [16]16 “Carrying out the blueprint to the end” (一张蓝图绘到底) is a common Chinese political idiom meaning to maintain strategic continuity and persistently implement a long-term plan without changing direction due to leadership transitions or short-term fluctuations. On this basis, the government assumes the main responsibility for drafting and implementation, the people’s congresses perform the statutory procedures of deliberation and approval according to law, and each performs its own duties while closely cooperating. Through institutionalized coordination mechanisms, they form a joint force, making the compilation of national and local five-year plans both strategic and operable.

规划纲要草案提交全国人民代表大会或地方人民代表大会审议批准，一经通过便向社会公布并进入全面实施阶段。纵观整个编制流程，各参与主体层次分明、权责清晰，形成了高效协同的治理闭环。其中，党中央和地方党委发挥着定海神针的整体把控、全局导航作用，其提出的规划《建议》从根本上破解了西方多党制国家规划频繁易辙、政策难以接续的治理难题，为“一张蓝图绘到底”提供了坚实的政治保障和制度支撑。在此基础上，政府承担起草与实施的主体责任，人大依法履行审议批准的法定程序，各司其职又密切配合，通过制度化的协同机制形成合力，使国家和地方五年规划的编制工作既具有战略性又具备可操作性。

(II) Implementation Subjects: The Party Exercises Overall Leadership – The Government Organizes Implementation – The People’s Congress Supervises According to Law

（二）实施主体：党总揽全局—政府组织实施—人大依法监督

General Secretary Xi Jinping has emphasized: “Formulating a good document is only the first step in a Long March of ten thousand li; the key lies in implementing the document.” While scientifically compiling a five-year plan is important, promoting the plan’s landing and achieving tangible results is even more critical. After long-term exploration, China has gradually established a planning implementation mechanism in which multiple subjects, including the Party exercising overall leadership, the government organizing implementation, and the people’s congress supervising according to law, are organically connected and work together in a coordinated manner.

习近平总书记强调：“制定出一个好文件，只是万里长征走完了第一步，关键还在于落实文件。”科学编制五年规划固然重要，但推动规划落地见效更为关键。经过长期探索，我国已逐步建立起党总揽全局、政府组织实施、人大依法监督等多元主体有机衔接、协同推进的规划实施机制。

Adhering to the Party’s overall leadership is the political prerequisite for the effective implementation of the five-year plan. As the leading core of Chinese-path modernization, the Communist Party of China consistently plays the role of exercising overall leadership and coordinating all parties throughout the planning implementation process. Its core functions run through multiple dimensions, including direction guidance, overall coordination, and effectiveness assurance. At the level of direction guidance, the Party’s leadership provides a strong political guarantee for advancing Chinese-path modernization through the five-year plan. Facing complex and severe international and domestic situations and arduous and heavy tasks of reform, development, and stability, only by fully leveraging the Party’s stabilizing role in setting the direction, planning the overall situation, formulating policies, and promoting reform can new opportunities be cultivated amidst crises and new situations be opened up amidst changes, ensuring the steady and long-term progress of Chinese-path modernization. At the level of overall coordination, the centralized and unified leadership of the Party Central Committee is the fundamental guarantee for凝聚 [17]17 “Condense” (凝聚) – in this context, a standard Chinese political term meaning to gather and concentrate forces or consensus to form a unified direction. policy synergy in promoting economic and social development. In response to problems such as “conflicting plans” that may arise from departmental fragmentation during the implementation of the plan, the Party relies on Party committees (leading Party members’ groups) at all levels and grassroots Party organizations in various fields to strengthen political leadership, break down interest barriers, and promote the formation of a work pattern of “central coordination, local decomposition, and departmental collaboration,” effectively unifying thoughts and actions with the decisions and deployments of the Party Central Committee, and ensuring that all implementing entities work together in a coordinated manner under the “national chessboard.” [18]18 “National chessboard” (全国一盘棋) is a metaphor for the entire nation acting as a single, coordinated entity under central leadership, emphasizing unified planning and action. At the level of effectiveness assurance, the Party’s leadership provides a strong organizational guarantee for consolidating the foundation and gathering momentum for the implementation of the five-year plan. By virtue of its vast and tightly organized network and the vanguard and exemplary role played by its vast number of Party members, the Party can fully mobilize the initiative, creativity, and enthusiasm of the broad masses of the people, promoting the plan to take root and bear fruit in various fields and scenarios of grassroots governance.

坚持党的全面领导是五年规划有效实施的政治前提。作为中国式现代化的领导核心，中国共产党在规划实施过程中始终发挥着总揽全局、协调各方的统领作用，其核心职能贯穿方向引领、统筹协调与效能保障等多个维度。在方向引领层面，党的领导为以五年规划推进中国式现代化提供了坚强政治保障。面对错综复杂的国际国内形势、艰巨繁重的改革发展稳定任务，只有充分发挥党把方向、谋大局、定政策、促改革的定海神针作用，才能在危机中育新机、于变局中开新局，确保中国式现代化行稳致远。在统筹协调层面，党中央集中统一领导是凝聚推动经济社会发展政策合力的根本保证。针对规划落地过程中因部门条块分割可能引发的规划“打架”等问题，党依托各级党委（党组）和各领域基层党组织，强化政治引领、打破利益藩篱，推动形成“中央统筹、地方分解、部门协同”的工作格局，切实把思想和行动统一到党中央决策部署上来，确保各执行主体在“全国一盘棋”中协同发力。在效能保障层面，党的领导为五年规划落地夯基聚势提供坚强组织保证。党凭借其庞大严密的组织网络和广大党员先锋模范作用的发挥，能够充分调动广大人民群众的积极性、主动性和创造性，推动规划在基层治理的各领域、各场景中落地生根。

Government organization and implementation is the key link for the effective landing of the five-year plan. The National Development Planning Law of the People’s Republic of China, deliberated and adopted in March 2026, clearly stipulates that “the State Council is responsible for organizing the implementation of national development plans,” establishing from the legal level the core position of the State Council as the organizer and implementer of the plan. On this basis, the Law further requires that “the State Council organizes the compilation of annual plans for national economic and social development,” transforming macro strategies into annual, operable specific tasks. Governments at all levels follow this principle, decomposing and refining the objectives and tasks of the five-year plan level by level, thereby constructing an implementation chain that connects the upper and lower levels, coordinates all parties, advances in an orderly manner, and executes with force, ensuring that the objectives and tasks of the five-year plan land precisely and achieve tangible results.

政府组织实施是五年规划有效落地的关键环节。2026年3月审议通过的《中华人民共和国国家发展规划法》明确规定，“国务院负责组织实施国家发展规划”，从法律层面确立了国务院作为规划组织实施者的核心地位。在此基础上，该法进一步要求“国务院组织编制国民经济和社会发展年度计划”，将宏观战略转化为分年度、可操作的具体任务。各级政府以此为遵循，将五年规划的目标任务逐级分解、细化落实，由此构建起上下贯通、各方协同、推进有序、执行有力的实施链条，确保五年规划的目标任务精准落地、取得实效。

Supervision by the people’s congress according to law is the legal guarantee for the effective advancement of the five-year plan. People’s congresses at all levels conduct whole-process supervision over the completion of the plan’s main indicators and major tasks through means such as regularly listening to and deliberating reports on the implementation of the plan, carrying out law enforcement inspections, and conducting special inquiries, ensuring that national development goals are achieved on schedule. For example, during the 14th Five-Year Plan period, people’s congresses and their standing committees at all levels took the construction of an ecological civilization as a key work area for carrying out law enforcement inspections, regularly listened to and deliberated on the work reports of the governments at the same level, and strengthened follow-up supervision over the implementation of law enforcement inspection reports and deliberation opinions related to the Air Pollution Prevention and Control Law, the Law on the Prevention and Control of Environmental Pollution by Solid Wastes, the Water Pollution Prevention and Control Law, etc., ensuring the implementation of relevant laws and achieving comprehensive benefits from the coordinated advancement of environmental protection, economic and social development, and other aspects.

人大依法监督是五年规划有效推进的法治保证。各级人大通过定期听取审议规划实施情况报告、开展执法检查、专题询问等方式，对规划主要指标和重大任务完成情况进行全过程监督，确保国家发展目标如期实现。譬如，“十四五”期间，各级人大及其常委会把生态文明建设作为重点工作领域开展执法检查，定期听取并审议同级政府工作报告，并加强对大气污染防治法、固体废物污染环境防治法、水污染防治法等相关执法检查报告及审议意见落实情况的跟踪监督，确保了相关法律的落地实施，也取得了环境保护、经济社会发展等方面协同推进的综合效益。

(III) Evaluation Subjects: Government Organizes Evaluation – Reports to Party Organizations for Consent – Standing Committee of the People’s Congress Deliberates

（三）评估主体：政府组织评估—报请党组织同意—人大常委会审议

National economic and social development is a complex system composed of multiple subsystems that are intertwined and dynamically evolving. It is difficult for any plan to achieve completely accurate predictions over a long time span. To this end, in November 2018, the “Opinions of the Central Committee of the CPC and the State Council on Unifying the Planning System to Better Leverage the Strategic Guiding Role of National Development Plans” clearly stated that “planning compilation departments should organize and carry out annual monitoring and analysis of plan implementation, mid-term evaluations, and summary evaluations, encourage third-party evaluations, and strengthen the application of monitoring and evaluation results.” This institutional design is precisely intended to grasp the direction dynamically, continuously optimize through feedback, use evaluation results to verify whether the plan is scientific, standardized, and complete, promptly identify problems to correct and improve them, reduce errors and deviations, and promote the development of the plan in a direction that meets the expectations and satisfaction of the people, thereby serving as a “monitor” and “navigation device” to achieve more and greater practical results.

国民经济和社会发展是由多重子系统相互交织、动态演化的复杂系统，任何规划都难以在较长的时间跨度内实现完全精准的预判。为此，2018年11月，《中共中央国务院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》明确提出“规划编制部门要组织开展规划实施年度监测分析、中期评估和总结评估，鼓励开展第三方评估，强化监测评估结果应用”。这一制度设计，正是为了在动态中把握方向，在反馈中持续优化，用评估结果验证规划是否科学、规范、完善，发现问题及时修正、完善，减少失误与偏差，推动规划朝着人民群众预期、满意的方向发展，以取得更多、更大实效的“监控器”和“导航仪”。

Mid-term evaluations and summary evaluations are both organized by the State Council or local governments. After the evaluation report is completed, it is submitted to the Standing Committee of the People’s Congress for deliberation following approval by the Party Central Committee or the local Party committee. Among these, the mid-term evaluation, because of the critical timing of its conduct, holds a special position in the full-cycle management of the plan. It is not only a systematic review of the implementation effects of the preceding phase but also a strategic recalibration oriented toward the future. Its content covers the completion status of binding targets, the progress of key tasks, and the advancement of major engineering projects. The core objective is to identify problems in a timely manner, adjust the implementation pathway, and ensure that the overall goals of the plan are realized smoothly and on schedule. For example, in December 2023, at the seventh session of the Standing Committee of the 14th National People’s Congress, the director of the National Development and Reform Commission delivered a report to the Standing Committee of the National People’s Congress on the mid-term evaluation of the 14th Five-Year Plan. The report indicated that the progress of twelve major target indicators, including “modern industrial system,” “comprehensively deepening reform,” and “modernization of agriculture and rural areas,” was generally in line with expectations. At the same time, the report analyzed six major problems and challenges facing the implementation of the Outline, such as “the prominent impact of ‘bottleneck’ issues in key core technologies” and “there are still many hard nuts to crack in reform in key areas,” and accordingly proposed a series of targeted advancement strategies, including “striving to win the battle against key core technology bottlenecks” and “striving to deepen market-oriented reform and institution-based opening up,” providing strong support for the effective implementation of the Outline in its latter half. It should be noted that the “plan evaluation” link is not the final stage in the planning process; rather, it is an important bridge connecting the two five-year cycles before and after. In fact, while conducting the mid-term evaluation of the 14th Five-Year Plan, China has simultaneously initiated preliminary research on the development environment and major goals and tasks for the period of the 15th Five-Year Plan. The evaluation conclusions of the previous plan directly constitute an important basis for the formulation of the next plan, thereby promoting the formation of a spiraling closed loop of “formulation—implementation—evaluation—re-formulation” for the plan, reflecting the systemic thinking of continuous optimization and orderly advancement in national governance.

中期评估和总结评估均由国务院或地方政府组织开展，形成评估报告后，经党中央或地方党委同意后提交人大常委会审议。其中，中期评估因其开展的时机关键，在规划的全周期管理中具有特殊地位，它不仅是对前一阶段执行效果的系统检视，更是一次面向未来的策略校准，其内容涵盖约束性指标完成情况、重点任务推进情况和重大工程项目进展情况，核心目标是及时识别问题、调整实施路径，确保规划总体目标顺利、如期实现。例如，2023年12月，在第十四届全国人民代表大会常务委员会第七次会议上，国家发展和改革委员会主任就“十四五”规划中期评估情况向全国人大常委会作报告。报告指出，包括“现代产业体系”“全面深化改革”“农业农村现代化建设”等在内的十二项主要目标指标进展总体符合预期。同时，报告分析了《纲要》实施面临的“关键核心技术‘卡脖子’影响凸显”“重点领域改革还有不少硬骨头”等六大主要问题和挑战，并据此提出“着力打好关键核心技术攻坚战”“着力深化市场化改革和制度型开放”等一系列针对性推进策略，为《纲要》后半程的有效落实提供了有力支撑。需要注意的是，“规划评估”环节并非规划流程中的最后一个阶段，而是衔接前后两个五年周期的重要桥梁。事实上，在开展“十四五”中期评估的同时，我国已同步启动了“十五五”规划时期的发展环境、主要目标任务的前期研究。上一轮规划的评估结论，直接构成下一轮规划编制的重要依据，由此推动形成规划“编制—实施—评估—再编制”的螺旋式上升闭环，体现了国家治理中持续优化、有序推进的系统思维。

Conclusion

结语

The five-year plan concerns the overall situation of national development, the process of modernization, and the great cause of national rejuvenation. It is a systematic, strategic, and forward-looking project through which the Communist Party of China unites and leads the people of the whole country, based on national conditions and with a long-term perspective, to guide the development of the cause of socialism with Chinese characteristics. The five-year plan has interdependent and synergistic relationships in terms of content, system, and subjects, jointly constructing the complete form of the five-year plan as a systemic project. Among these, the overall layout of the plan’s content, as the logical thread running through the connection of the planning system and the actions of planning subjects, establishes the direction and priorities of development; the effective connection of the planning system provides structural support for the implementation of content and the interaction of subjects, ensuring the coordinated operation of various types and levels of plans; and the coordinated advancement of planning subjects is the subjective force for the realization of content and the operation of the system, driving the transformation of the macro blueprint into concrete practice. Grasping the characteristics of systemic thinking embodied in the five-year plan from these three dimensions not only helps to understand the internal logic of the five-year plan’s operation but will also promote the transformation of this institutional advantage into national governance effectiveness, providing solid support for the modernization of China’s national governance system and governance capacity.

五年规划关乎国家发展全局、现代化建设进程与民族复兴伟业，是中国共产党团结带领全国人民，立足国情、着眼长远，引领中国特色社会主义事业发展的系统性、战略性和前瞻性工程。五年规划在内容、体系和主体上具有相互依存、协同作用的关系，共同构筑起五年规划作为系统工程的完整形态。其中，规划内容的整体布局，作为贯穿规划体系衔接与规划主体行动的逻辑主线，确立了发展的方向与重点；规划体系的有效衔接，为内容实施与主体互动提供了结构性支撑，保障各级各类规划之间的协同运作；规划主体的协同推进，则是内容落地与体系运转的主体力量，推动宏观蓝图转化为具体实践。从这三个维度出发把握五年规划所蕴含的系统思维特质，不仅有助于理解五年规划运行的内在逻辑，更将推动这一制度优势转化为国家治理效能，为我国国家治理体系和治理能力现代化提供坚实支撑。

(Ha Zhanrong is a professor and doctoral supervisor at the School of Marxism, Central University of Finance and Economics; Zhang Ying is a 2025-level doctoral student at the School of Marxism, Central University of Finance and Economics.)

（哈战荣系中央财经大学马克思主义学院教授、博士研究生导师；张莹系中央财经大学马克思主义学院2025级博士研究生）