導(dǎo) 讀

10月20日至23日，黨的二十屆四中全會(huì)在京舉行，審議通過(guò)了《中共中央關(guān)于制定國(guó)民經(jīng)濟(jì)和社會(huì)發(fā)展第十五個(gè)五年規(guī)劃的建議》。為此，《北京周報(bào)》（BEIJING REVIEW）獨(dú)家專訪清華大學(xué)中國(guó)新型城鎮(zhèn)化研究院院長(zhǎng)尹稚教授，權(quán)威解讀“十五五”時(shí)期中國(guó)區(qū)域發(fā)展的戰(zhàn)略思路。

內(nèi)容來(lái)源：《北京周報(bào)》（BEIJING REVIEW）2025年第45期

專訪整理：北京周報(bào)記者 張莎莎

尹 稚

清華大學(xué)建筑學(xué)院教授，博士生導(dǎo)師

清華大學(xué)中國(guó)新型城鎮(zhèn)化研究院院長(zhǎng)

清華大學(xué)城市治理與可持續(xù)發(fā)展研究院院長(zhǎng)

清華大學(xué)國(guó)家治理與全球治理研究院首席專家

中國(guó)城市規(guī)劃學(xué)會(huì)副監(jiān)事長(zhǎng)

清華同衡規(guī)劃設(shè)計(jì)研究院創(chuàng)始人、資深顧問(wèn)專家

城市規(guī)劃領(lǐng)域中的“門(mén)檻理論”揭示了一個(gè)普遍規(guī)律：任何事業(yè)的進(jìn)步并非遵循簡(jiǎn)單的線性上升路徑，而是在經(jīng)歷階段性爆發(fā)式增長(zhǎng)后，往往會(huì)因環(huán)境變遷、技術(shù)制約等因素，進(jìn)入一個(gè)調(diào)整與平臺(tái)期。這一階段通常需要完成幾項(xiàng)關(guān)鍵任務(wù)：識(shí)別重大機(jī)遇的轉(zhuǎn)變，突破發(fā)展過(guò)程中的關(guān)鍵性瓶頸，探索新舊動(dòng)能之間有效轉(zhuǎn)換的路徑，并在新的發(fā)展條件下實(shí)現(xiàn)可用資源的優(yōu)化重組。一旦成功跨越這些關(guān)鍵障礙，便有望迎來(lái)下一輪更高質(zhì)量、更高速度的成長(zhǎng)。無(wú)論是城市、區(qū)域還是國(guó)家的發(fā)展，其軌跡都不是一條斜率恒定的上升直線，而更接近于階梯式的躍升過(guò)程。

中國(guó)的現(xiàn)代化進(jìn)程同樣呈現(xiàn)出清晰的階梯式遞進(jìn)特征。“十五五”時(shí)期的發(fā)展重點(diǎn)，不在于盲目追求規(guī)模與速度，而是要為高質(zhì)量發(fā)展立規(guī)則、樹(shù)標(biāo)準(zhǔn)、探路徑、調(diào)布局和謀統(tǒng)籌。必須夯實(shí)基礎(chǔ)、全面發(fā)力，克難關(guān)、戰(zhàn)風(fēng)險(xiǎn)、迎挑戰(zhàn)。到2035年，中國(guó)現(xiàn)代化進(jìn)程能否行穩(wěn)致遠(yuǎn)，關(guān)鍵取決于這五年所奠定的基礎(chǔ)是否牢固、所選擇的路徑是否科學(xué)合理。一旦平穩(wěn)跨越這一關(guān)鍵階段，在“十六五”乃至“十七五”期間，中國(guó)社會(huì)經(jīng)濟(jì)有望迎來(lái)新一輪的爆發(fā)式增長(zhǎng)。

“四大戰(zhàn)略”疊加效應(yīng)

二十屆四中全會(huì)為下一階段區(qū)域發(fā)展作出了明確部署：

四大戰(zhàn)略疊加，協(xié)同驅(qū)動(dòng)區(qū)域發(fā)展。全會(huì)強(qiáng)調(diào)，要充分發(fā)揮區(qū)域協(xié)調(diào)發(fā)展戰(zhàn)略、區(qū)域重大戰(zhàn)略、主體功能區(qū)戰(zhàn)略與新型城鎮(zhèn)化戰(zhàn)略的疊加效應(yīng)。過(guò)去，這四大戰(zhàn)略各有側(cè)重：區(qū)域協(xié)調(diào)注重均衡，重大戰(zhàn)略聚焦增長(zhǎng)極建設(shè)，主體功能區(qū)強(qiáng)調(diào)分區(qū)差異化治理，新型城鎮(zhèn)化則著眼于人的現(xiàn)代化與城市的主導(dǎo)作用。四大戰(zhàn)略疊加，就是要實(shí)現(xiàn)發(fā)展動(dòng)力與空間載體的高效匹配。

要推動(dòng)從城市到區(qū)域的特色化發(fā)展，而不是用“一把尺子”量全國(guó)。各地區(qū)要立足其自然資源稟賦、區(qū)位條件和社會(huì)經(jīng)濟(jì)基礎(chǔ)，制定符合實(shí)際的發(fā)展目標(biāo)。部分區(qū)域適宜推進(jìn)高速高質(zhì)量增長(zhǎng)，部分地區(qū)反而適合減量發(fā)展。重點(diǎn)城市化地區(qū)是經(jīng)濟(jì)主引擎，發(fā)展綜合性強(qiáng)，也是人口主要聚集地；而生態(tài)保育地區(qū)，則不應(yīng)追求工業(yè)高速高增加值，而要聚焦生態(tài)治理能力的提升。此外，應(yīng)推動(dòng)城市化優(yōu)勢(shì)地區(qū)與潛力地區(qū)的對(duì)接融合，在綜合評(píng)估基礎(chǔ)上明確區(qū)域新定位，尋找特色化發(fā)展機(jī)遇。

推動(dòng)經(jīng)濟(jì)布局與國(guó)土空間體系融合發(fā)展。要促進(jìn)區(qū)域經(jīng)濟(jì)布局與國(guó)土空間體系的匹配優(yōu)化。經(jīng)濟(jì)社會(huì)發(fā)展規(guī)劃明確目標(biāo)與標(biāo)準(zhǔn)，國(guó)土空間體系則為發(fā)展提供具有適宜區(qū)位、合理規(guī)模與質(zhì)量保障的空間載體。“十四五”時(shí)期側(cè)重于開(kāi)發(fā)與保護(hù)的結(jié)構(gòu)平衡，旨在緩解城鎮(zhèn)化高速發(fā)展階段中大規(guī)模建設(shè)與生態(tài)保護(hù)間的突出矛盾。當(dāng)前，我國(guó)在國(guó)土空間保護(hù)與約束體系建設(shè)方面已取得顯著進(jìn)展，但在發(fā)展支撐能力上仍有提升空間。因此，新階段重在優(yōu)化國(guó)土空間發(fā)展格局，強(qiáng)化其對(duì)社會(huì)經(jīng)濟(jì)發(fā)展的保障作用，實(shí)現(xiàn)“優(yōu)勢(shì)互補(bǔ)、各司其職”的高質(zhì)量發(fā)展路徑。

強(qiáng)化區(qū)域聯(lián)動(dòng)，破解發(fā)展不平衡問(wèn)題。區(qū)域協(xié)調(diào)發(fā)展戰(zhàn)略進(jìn)一步強(qiáng)調(diào)區(qū)域聯(lián)動(dòng)，旨在加快解決發(fā)展不平衡問(wèn)題。其重點(diǎn)包括兩個(gè)方面：一是推動(dòng)強(qiáng)勢(shì)區(qū)域之間的強(qiáng)強(qiáng)聯(lián)合，促進(jìn)資源整合與功能協(xié)同，實(shí)現(xiàn)“1+1>2”的聚合效應(yīng)，提升整體發(fā)展質(zhì)量；二是促進(jìn)發(fā)達(dá)地區(qū)與欠發(fā)達(dá)地區(qū)之間的互補(bǔ)聯(lián)動(dòng)，既依靠中央財(cái)政轉(zhuǎn)移支付等調(diào)控手段，也鼓勵(lì)市場(chǎng)機(jī)制發(fā)揮作用，利用兩類地區(qū)間的資源差、成本差、價(jià)位差，推動(dòng)產(chǎn)業(yè)集群和產(chǎn)業(yè)鏈上進(jìn)一步的分工合作，實(shí)現(xiàn)整體效益最大化。

深入推進(jìn)以人為本的新型城鎮(zhèn)化。新型城鎮(zhèn)化的核心始終是“以人為本”。城市化進(jìn)程，無(wú)論是量化指標(biāo)的城市化率，還是城市所承擔(dān)的社會(huì)經(jīng)濟(jì)發(fā)展功能，說(shuō)到底還是 “人”的命題。推動(dòng)現(xiàn)代化的根本目標(biāo)，始終是人的現(xiàn)代化及全體國(guó)民素質(zhì)的大幅提升。

首先，要解決好市民化的問(wèn)題。市民化進(jìn)程的核心，在于超越單純的職業(yè)轉(zhuǎn)換，實(shí)現(xiàn)農(nóng)業(yè)轉(zhuǎn)移人口在城市的深度融入。過(guò)去以“農(nóng)民工”為代表的模式，其在文化認(rèn)同、居住形態(tài)、生活模式上仍然處于農(nóng)村化，是“半市民化”狀態(tài)。真正的、完整的市民化，需要實(shí)現(xiàn)就業(yè)轉(zhuǎn)移、生活方式轉(zhuǎn)移和社會(huì)意識(shí)轉(zhuǎn)移。這不僅涉及就業(yè)，也要求建立一個(gè)覆蓋其自身及家庭的公共服務(wù)體系，確保在教育、醫(yī)療、社保等領(lǐng)域享有平等權(quán)利。

當(dāng)前，勞動(dòng)力轉(zhuǎn)移結(jié)構(gòu)正經(jīng)歷深刻轉(zhuǎn)折，大專及以上學(xué)歷畢業(yè)生進(jìn)城規(guī)模已超越農(nóng)村剩余勞動(dòng)力的轉(zhuǎn)移數(shù)量。在這一新形勢(shì)下，市民化工作須確保新市民“進(jìn)得來(lái)、留得下、發(fā)展好”，并在積累了技能與物質(zhì)財(cái)富后返鄉(xiāng)創(chuàng)業(yè)、振興鄉(xiāng)村，最終構(gòu)建一個(gè)從“鄉(xiāng)到城”再到“城到鄉(xiāng)”的良性雙向循環(huán)體系。

其次，要優(yōu)化社會(huì)財(cái)富分配結(jié)構(gòu)，提高勞動(dòng)收入占比。我國(guó)高度重視收入分配公平問(wèn)題，堅(jiān)決防止財(cái)富兩極分化與底層民粹化風(fēng)險(xiǎn)。在推進(jìn)城鎮(zhèn)化的過(guò)程中，應(yīng)抑制經(jīng)濟(jì)過(guò)度金融化傾向，確保金融工具服務(wù)于實(shí)體經(jīng)濟(jì)、科技創(chuàng)新與民生改善，而非成為資本逐利的通道。

為高質(zhì)量發(fā)展提供空間支撐

傳統(tǒng)社會(huì)的一個(gè)顯著特征是，人、土地與特定地域之間存在緊密的依附關(guān)系；而現(xiàn)代社會(huì)則呈現(xiàn)出高度的流動(dòng)性，新的就業(yè)機(jī)會(huì)與發(fā)展空間，根本上來(lái)源于各類生產(chǎn)要素的流通與重組。在這一方面，我國(guó)已取得顯著進(jìn)展：以人流、物流、信息流、資本流為代表的廣義互聯(lián)互通網(wǎng)絡(luò)不斷強(qiáng)化，硬件設(shè)施與軟件環(huán)境同步提升，社會(huì)整體流動(dòng)性顯著增強(qiáng)。與此同時(shí)，以商品流通為核心的全國(guó)統(tǒng)一大市場(chǎng)也已基本具備成熟條件。

在此背景下，推動(dòng)生產(chǎn)力要素的更高水平自由流動(dòng)成為關(guān)鍵。未來(lái)的核心任務(wù)之一，是破除勞動(dòng)者自由流動(dòng)的壁壘。當(dāng)前，勞動(dòng)者在省域范圍內(nèi)的流動(dòng)已基本實(shí)現(xiàn)無(wú)障礙，長(zhǎng)三角等發(fā)達(dá)地區(qū)已開(kāi)始探索勞動(dòng)力跨省域流動(dòng)。長(zhǎng)遠(yuǎn)目標(biāo)是實(shí)現(xiàn)全國(guó)范圍內(nèi)的人口自由流動(dòng)，最理想的狀態(tài)是身份證能夠只作為公民身份標(biāo)識(shí)，逐步與流動(dòng)過(guò)程中享受的社會(huì)福利基本脫鉤。在土地要素方面，土地指標(biāo)是否能夠在指標(biāo)稀缺地區(qū)和富裕地區(qū)流動(dòng)也非常關(guān)鍵。目前，指標(biāo)調(diào)配還多局限于市域或省域范圍內(nèi)。對(duì)于數(shù)據(jù)等新質(zhì)生產(chǎn)要素，則需著力破解“數(shù)字孤島”，在“十五五”期間通過(guò)建立規(guī)則與標(biāo)準(zhǔn)，實(shí)現(xiàn)其跨部門(mén)、跨領(lǐng)域的合規(guī)高效流動(dòng)。

在“十五五”階段，發(fā)展水平最高的地區(qū)已進(jìn)入構(gòu)建世界級(jí)城市群為主要任務(wù)的發(fā)展階段。大部分地區(qū)仍需以培育規(guī)模適度的現(xiàn)代化都市圈為首要任務(wù)。近年來(lái)，除長(zhǎng)三角、粵港澳、京津冀等傳統(tǒng)優(yōu)勢(shì)區(qū)域外，越來(lái)越多的城市群和都市圈開(kāi)始見(jiàn)諸于國(guó)內(nèi)和國(guó)際舞臺(tái)，其中包括成渝雙城經(jīng)濟(jì)圈、以武漢、長(zhǎng)沙、南昌為核心的長(zhǎng)江中游城市群、在“一帶一路”發(fā)展中作用日益突出的以烏魯木齊為中心的天山北坡城市群、面向東盟和東南亞地區(qū)發(fā)展的北部灣城市群，以及以昆明為核心的滇中城市群。隨著國(guó)家全球互聯(lián)互通戰(zhàn)略的深入推進(jìn)，以及中國(guó)在全球經(jīng)濟(jì)體系中扮演更加重要的角色，更多戰(zhàn)略樞紐地區(qū)的地位將得到進(jìn)一步鞏固和提升。

當(dāng)前，優(yōu)化戰(zhàn)略腹地建設(shè)已成為國(guó)家發(fā)展的重要議題，新一輪戰(zhàn)略腹地建設(shè)秉持“邊斗爭(zhēng)、邊備戰(zhàn)、邊建設(shè)”的指導(dǎo)思想，旨在應(yīng)對(duì)日益復(fù)雜的國(guó)際形勢(shì)與不確定性挑戰(zhàn)。與上世紀(jì)六七十年代的“三線建設(shè)”不同，當(dāng)前戰(zhàn)略腹地建設(shè)不僅承擔(dān)國(guó)家重大生產(chǎn)力與能源資源戰(zhàn)略儲(chǔ)備功能，更順應(yīng)了經(jīng)濟(jì)格局市場(chǎng)化調(diào)整的內(nèi)在需求。隨著沿海地區(qū)物業(yè)成本與生活成本的抬升，產(chǎn)業(yè)鏈各環(huán)節(jié)依據(jù)效益原則進(jìn)行空間重構(gòu)。部分產(chǎn)業(yè)環(huán)節(jié)從高成本地區(qū)向戰(zhàn)略腹地轉(zhuǎn)移。事實(shí)上，許多在戰(zhàn)略腹地形成的新興產(chǎn)業(yè)和新產(chǎn)業(yè)鏈條上的關(guān)鍵制造節(jié)點(diǎn)，正是市場(chǎng)主體自主選擇的結(jié)果。不少沿海企業(yè)積極在腹地設(shè)立第二、第三制造基地，這些基地憑借租金成本優(yōu)勢(shì)、勞動(dòng)力資源豐富等條件，往往形成比沿海原有基地更大規(guī)模、更高水平的產(chǎn)能集聚。本輪戰(zhàn)略樞紐與戰(zhàn)略腹地建設(shè)，呈現(xiàn)出“有效市場(chǎng)”與“有為政府”相互促進(jìn)的特征。

近年來(lái)，“要素隨人走、投資隨人走、資源隨人走”已成為資源配置的重要導(dǎo)向，相關(guān)政策開(kāi)始注重對(duì)人口流入與流出地區(qū)實(shí)施差異化的投資與要素投放。在全國(guó)城市化進(jìn)程中，具體城市出現(xiàn)人口增減是正?，F(xiàn)象。對(duì)于承擔(dān)生態(tài)保育功能的地區(qū)而言，其首要任務(wù)是保護(hù)生態(tài)環(huán)境，而非盲目追求人口增長(zhǎng)。這些地區(qū)往往已面臨人口超載壓力，因此，通過(guò)提升教育水平，促使培養(yǎng)出的勞動(dòng)力向更適合發(fā)展現(xiàn)代產(chǎn)業(yè)的城市化地區(qū)集中，實(shí)際上有利于區(qū)域協(xié)調(diào)發(fā)展。

人口有序流動(dòng)可通過(guò)兩種形式改善原居地居民生活水平：一是外出務(wù)工人員通過(guò)匯款反哺家鄉(xiāng)，二是部分家庭實(shí)現(xiàn)整體遷移。這為生態(tài)敏感地區(qū)帶來(lái)人口減負(fù)，留守居民人均占有的生態(tài)資源量相應(yīng)提升。通過(guò)有效管護(hù)與保育，這些生態(tài)資源將轉(zhuǎn)化為高價(jià)值的生態(tài)資產(chǎn)，形成新發(fā)展優(yōu)勢(shì)。隨著“雙碳”目標(biāo)的推進(jìn)，碳交易市場(chǎng)活力將不斷增強(qiáng)。在嚴(yán)格控制碳排放的背景下，一些必要的高碳行業(yè)可通過(guò)購(gòu)買排放配額持續(xù)運(yùn)營(yíng)，這為人口減負(fù)地區(qū)創(chuàng)造了新的發(fā)展機(jī)遇。

農(nóng)業(yè)地區(qū)同樣遵循相似邏輯。在人均耕地面積有限的背景下，推動(dòng)農(nóng)業(yè)人口向承載能力更強(qiáng)、生活與發(fā)展條件更優(yōu)的地區(qū)集聚，有助于騰退更多空間，以更合理的資源負(fù)荷推進(jìn)生態(tài)修復(fù)與耕地保護(hù)。通過(guò)提升人均耕作面積與經(jīng)營(yíng)規(guī)模，農(nóng)業(yè)才能真正實(shí)現(xiàn)增收與可持續(xù)發(fā)展。因此，“要素隨人走、投資隨人走、資源隨人走”的配置機(jī)制，將顯著提升經(jīng)濟(jì)發(fā)展的效率與區(qū)域?qū)I(yè)化、特色化水平。

前一階段的國(guó)土空間規(guī)劃工作更多在于強(qiáng)調(diào)底線約束與生態(tài)保護(hù)，以快速緩解資源環(huán)境領(lǐng)域的突出矛盾。然而，僅僅守住底線并不足以支撐高質(zhì)量發(fā)展的全面要求。國(guó)土空間規(guī)劃不僅承擔(dān)著保護(hù)自然資源與生態(tài)底線的責(zé)任，同樣肩負(fù)著為經(jīng)濟(jì)社會(huì)發(fā)展提供有效空間支撐和環(huán)境保障的重要使命。正因如此，“十五五”時(shí)期將著力推動(dòng)保護(hù)與發(fā)展的深度融合，增強(qiáng)發(fā)展動(dòng)能與資源環(huán)境承載能力之間的匹配度，提升國(guó)土空間的綜合支撐能力。同時(shí)必須明確的是，發(fā)展始終是中國(guó)面對(duì)任何國(guó)際環(huán)境時(shí)的核心主題。

以下為英文報(bào)道原文：

China aims to create a more effective alignment between the forces that drive growth and the spaces that carry it

By Yin Zhi

In urban planning, there is a well-known "threshold theory," which suggests that development, whether of a city, a region or an entire nation, does not follow a smooth and linear path upward; instead, progress advances in stages.

After a period of rapid growth, with changes in development environment and technological bottlenecks, there often comes a phase of adjustment and stabilization, during which several tasks must be undertaken: identifying shifts in major opportunities, overcoming key development obstacles, achieving an effective transition between old and new growth drivers, and reorganizing available resources in response to changing circumstances. Once these challenges are resolved, a new phase of accelerated development begins.

China's modernization follows this law. The upcoming 15th Five-Year Plan (2026-30) period will not be about racing for speed or scale. Rather, it will be about setting the rules, establishing the standards, exploring pathways, optimizing planning and ensuring coordinated progress for high-quality development. It will be a time for China to strengthen foundations and confront challenges head-on.

From coordination to integration

Over the years, China has introduced four strategies for guiding regional development. Each once served a distinct purpose—the Coordinated Regional Development Strategy emphasized balance, the Major Regional Strategies prioritized the creation of growth poles, the Functional Zoning Strategy focused on differentiated governance, and the New Urbanization Strategy centered on people's modernization and the leading role of cities in the process.

The emphasis on "giving full play to the synergies between the four strategies" in the Recommendations of the Central Committee of the Communist Party of China (CPC) for Formulating the 15th Five-Year Plan for National Economic and Social Development aims to create a more effective alignment between the forces that drive growth and the spaces that carry it. The document, adopted at the Fourth Plenary Session of the 20th CPC Central Committee, held in Beijing on October 20-23, establish the guiding principles and objectives for China's overall advancement over the next five years.

China is placing even greater emphasis on tailored development based on each region's distinctive natural, economic and social resource conditions. Another focus is the integration of regional economic layout and the territorial space system. The former sets goals and standards for development while the latter provides the physical and environmental foundation for achieving them (such as zoning and land use planning).

During the 14th Five-Year Plan (2021-25) period, the emphasis of spatial planning has been on balancing development and conservation, as China is still in a phase of rapid urbanization and faces strong tensions between large-scale construction and ecological preservation. In contrast to our major progress in environmental protection and regulatory frameworks, the mechanisms that sustain development have not yet played their full role. Thus, the new priority is to optimize the spatial layout for development.

A critical component of China's regional coordination strategy in the new stage is boosting interconnected development between regions. This has two main dimensions: Developed regions should cooperate to achieve a "one plus one is greater than two" effect, creating greater efficiency, innovation and competitiveness through synergy; cooperation between developed and less developed regions must be deepened. This involves not only financial transfer payments but also market-driven mechanisms that leverage their differences in prices, resources and costs to promote industrial clustering and value-chain collaboration. The goal is to maximize overall economic efficiency across regions. (The financial transfer payment refers to the funds allocated by higher-level governments to lower-level governments free of charge. It is an important policy tool mainly used to solve the problem of regional financial imbalance and promote the equalization of basic public services between regions—Ed.)

The concept of "people-centered" new urbanization is underlined in the document of recommendations. When discussing urbanization, whether in terms of the urbanization rate or the leading role cities play in driving social and economic development, it ultimately comes down to people.

In this regard, one of the tasks is to ensure people who move to cities from rural areas obtain household registration and access basic public services in their place of permanent residence.

A truly people-centered urbanization also touches upon how social wealth created by urbanization is distributed, specifically, increasing the labor income share. The ultimate goal is to raise overall national income, not to concentrate wealth among a few.

Strategic mobility

Modern society is defined by mobility. The more primitive a society, the more tightly people and land are bound together. However, new opportunities stem from the free flow of factors of production, namely, labor, capital, goods and information. China has made remarkable progress in this regard. From physical infrastructure to digital systems, connectivity has advanced greatly over the years. A unified national market centered on the free flow of goods is now largely in place.

The next step is to enable the freer movement of other factors of production, beginning with labor. Within provinces, mobility is already largely unhindered. In more advanced regions such as the Yangtze River Delta, policymakers are exploring how to achieve seamless inter-provincial movement. The ultimate goal is nationwide mobility.

Land use and resource allocation will follow a similar trajectory. For instance, can urban construction land quotas be transferred freely between resource-scarce and resource-abundant areas? Today, such adjustments are still largely limited within municipal or provincial boundaries. The same question extends to data resources. Breaking down "data silos" and enabling cross-sector data flow will also be key issues during the 15th Five-Year Plan period.

During this period, China's most advanced regions are already moving into a new phase: developing world-class city clusters. For most other regions, the focus will be on cultivating smaller modern metropolitan circles with distinctive strengths. As China advances its strategy of global connectivity, a greater number of strategic hubs will be further strengthened.

Another priority is strengthening strategic hinterland. As property and living costs rise in eastern coastal regions, parts of the industrial chain are relocating inland, where production and living costs are lower. Many firms are building second or even third manufacturing bases in inland regions. These regions will play a crucial role in China's next phase of economic restructuring.

In recent years, China has also emphasized that factors of production, investment and resources should flow in line with the trends of population movement. This marks a shift toward more differentiated and adaptive policymaking, ensuring that both growing urban centers and less-populated areas receive the targeted support to achieve balanced and efficient development.

Urban population increases and decreases are part of a dynamic system. For ecological preservation areas, maintaining smaller populations and reducing human pressure can itself generate new value.

As China advances toward its goals of peaking carbon emissions before 2030 and achieving carbon neutrality before 2060, carbon markets will become a major new growth driver. Regions with lighter industrial footprints, including those with declining populations, will gain fresh opportunities by converting ecological resources into economic assets through conservation and carbon trading.

In earlier years, China's spatial planning focused mainly on preserving ecology and resources. The 15th Five-Year Plan shifts emphasis toward strengthening the foundation for development, ensuring that security and growth advance together. Even amid global uncertainty, development remains China's core priority.

排版｜李剛

封面圖/圖片｜北京周報(bào)