文旅案例 | 文旅融合新篇章：“十五五”時期的高質量發展路徑與優化策略

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“十五五”時期是中國從文旅大國邁向文旅強國的關鍵五年。其發展規劃必須具有前瞻性、系統性和可操作性，核心在于堅持以人民為中心，以高質量發展為主題，以深化供給側結構性改革為主線，以科技創新和深化改革為根本動力，統籌發展與安全。唯有通過理念、機制、技術、治理的全面優化提升，才能有效應對未來挑戰，充分釋放文旅產業“一業興、百業旺”的乘數效應，使其真正成為促進物質富足與精神富有、提升國家文化軟實力和中華文化影響力的戰略性支柱產業，為全面建設社會主義現代化國家貢獻獨特而磅礴的力量。

一、 當前文旅市場態勢與“十五五”面臨的宏觀背景，中國文旅市場呈現出顯著的復蘇與深刻的結構性變化：

需求側深度變革：消費者從傳統的觀光游覽向深度體驗、休閑度假、文化浸潤、健康養生轉變。本地游、周邊游、微度假常態化，追求“小而美”、“精而深”的個性化、定制化產品。Z世代成為消費主力，他們對文化認同、情感共鳴、社交分享、科技互動有更高要求。供給側亟待升級：盡管新業態、新場景不斷涌現，但整體上仍存在優質產品供給不足、區域發展不平衡、同質化競爭、產業鏈協同不夠等問題。傳統景區轉型升級壓力巨大，過度依賴門票經濟的模式難以為繼。科技融合加速演進：人工智能、大數據、虛擬現實、元宇宙等數字技術正以前所未有的力度重塑文旅產業的生產、傳播、消費和管理方式。智慧旅游從概念走向全面落地，成為提升體驗和效率的關鍵變量。政策導向更加明確：“以文塑旅、以旅彰文”的融合發展方向持續深化，文旅賦能鄉村振興、城市更新、區域協調發展的作用日益凸顯。同時，生態文明建設、文化遺產保護、國家安全等紅線要求，對文旅開發提出了更嚴格的約束與更高的價值追求。在此背景下，“十五五”文旅發展規劃需立足新發展階段，貫徹新發展理念，構建新發展格局，其核心任務是從“有沒有”轉向“好不好”，從“流量至上”轉向“質量優先”，從“單一經濟功能”轉向“綜合價值實現”。

The period of the 15th Five-Year Plan is a crucial five years for China to move from a major cultural and tourism country to a powerful one. Its development plan must be forward-looking, systematic and operational. The core lies in adhering to a people-centered approach, taking high-quality development as the theme, deepening supply-side structural reform as the main line, and taking scientific and technological innovation and deepening reform as the fundamental driving force, while coordinating development and security. Only through the comprehensive optimization and improvement of concepts, mechanisms, technologies and governance can we effectively address future challenges, fully unleash the multiplier effect of the "prosperity of one industry leads to the flourishing of many" in the cultural and tourism industry, and truly make it a strategic pillar industry that promotes material abundance and spiritual richness, enhances the country's cultural soft power and the influence of Chinese culture Contribute unique and powerful strength to the comprehensive construction of a modern socialist country.

I. Current Situation of the Cultural and Tourism Market and the Macro background faced during the "15th Five-Year Plan" period: The Chinese cultural and tourism market has shown a significant recovery and profound structural changes: Deep transformation on the demand side: Consumers are shifting from traditional sightseeing and sightseeing to in-depth experience, leisure and vacation, cultural immersion, and health preservation. Local Tours, nearby Tours and micro-vacations have become regular, and personalized and customized products that are "small but beautiful" and "exquisite but profound" are pursued. Generation Z has become the main consumer force. They have higher demands for cultural identity, emotional resonance, social sharing and technological interaction. The supply side urgently needs to be upgraded: Despite the continuous emergence of new business forms and scenarios, there are still problems such as insufficient supply of high-quality products, unbalanced regional development, homogeneous competition, and insufficient industrial chain coordination on the whole. The pressure for traditional scenic spots to transform and upgrade is huge, and the model that overly relies on the ticket economy is unsustainable. The integration and evolution of technology are accelerating: Digital technologies such as artificial intelligence, big data, virtual reality, and the metaverse are reshaping the production, dissemination, consumption, and management methods of the cultural and tourism industry with an unprecedented intensity. Smart tourism has moved from concept to full implementation and has become a key variable for enhancing experience and efficiency. The policy orientation has become more explicit: the integrated development direction of "shaping tourism with culture and highlighting culture through tourism" has been continuously deepened, and the role of culture and tourism in empowering rural revitalization, urban renewal, and coordinated regional development has become increasingly prominent. Meanwhile, the red line requirements such as ecological civilization construction, cultural heritage protection, and national security have imposed stricter constraints and higher value pursuits on cultural and tourism development. Against this backdrop, the "15th Five-Year Plan" for cultural and tourism development should be based on the new stage of development, implement the new development philosophy, and build a new development pattern. Its core task is to shift from "whether there is or not" to "whether it is good or not", from "traffic first" to "quality priority", and from "single economic function" to "comprehensive value realization".

二、 “十五五”時期文旅發展的戰略重點，基于以上研判，“十五五”期間文旅發展應聚焦以下戰略重點：

深化文旅融合，激活文化資源新價值：這是根本路徑。需超越簡單的“文化搭臺、旅游唱戲”，推動文化資源和旅游需求在內容、業態、空間、服務上的深度耦合與創新轉化。重點加強對中華優秀傳統文化、革命文化、社會主義先進文化的系統性梳理與活態化利用，打造一批具有鮮明中國文化標識、深度講述中國故事的文旅融合標桿項目。鼓勵發展文化遺產旅游、非遺體驗旅游、紅色研學旅游、文學影視主題旅游等，讓文化“可游、可感、可悟、可消費”。

強化科技賦能，構建智慧文旅新生態：這是核心驅動力。全面推進文旅產業的數字化轉型，建設覆蓋全產業鏈的智慧文旅體系。包括：開發沉浸式、交互式、場景化的數字文旅產品（如元宇宙景區、數字文博）；建設整合預約、導覽、支付、反饋等功能的“一機游”、“一碼通”智慧服務平臺；運用大數據實現精準營銷、客流預測與應急管理；推動AI在內容創作、智能客服、個性化推薦等方面的應用。目標是實現“管理智慧化、服務智能化、體驗沉浸化”。

優化空間布局，促進區域協調與鄉村振興：這是重要抓手。落實國家區域重大戰略，優化國家級文旅功能區布局。重點支持長江、黃河等國家文化公園建設成為傳承民族精神、體驗國家形象的標志性工程。大力實施文旅賦能鄉村振興戰略，深化“鄉村旅游+”模式，培育鄉村民宿、農耕體驗、康養度假等新業態，防止千村一面，保護鄉村風貌與文化肌理，將綠水青山、鄉土文化轉化為實實在在的共富資源。

升級消費體系，培育高品質產品與服務：這是主攻方向。以滿足人民日益增長的高品質、多樣化文旅需求為目標，優化產品結構。大力發展度假旅游、康養旅游、體育旅游、研學旅游、郵輪旅游、低空旅游等。推動傳統景區從門票經濟向綜合消費經濟轉型，延長產業鏈，提升二次消費占比。培育和引進具有國際影響力的文旅品牌、節慶活動。完善旅游公共服務設施，尤其注重無障礙環境建設，提升游客滿意度和獲得感。

踐行綠色發展，筑牢生態安全與文化安全底線：這是前提基礎。堅定不移地將生態優先、綠色發展理念貫穿于文旅規劃、開發、運營、管理全過程。嚴格評估文旅項目對生態環境和文化遺產的影響，推行綠色開發、低碳運營。加強文明旅游引導，推廣綠色消費。同時，高度重視意識形態安全和文化安全，確保文旅內容積極健康，傳播正能量，抵制低俗、庸俗、媚俗，保護國家文化資源和數據安全。

深化開放合作，提升國際影響力與競爭力：這是時代要求。在推動出入境旅游市場有序復蘇的同時，更注重“以文傳聲”，通過文旅交流講好中國故事。支持有條件的文旅企業、品牌“走出去”，參與國際競爭與合作。吸引更多體現國際水準、符合中國國情的文旅項目和管理經驗“引進來”。利用數字平臺，拓展線上國際傳播與交易渠道，提升中華文化的全球觸達力和影響力。

Ii. Strategic Priorities for Cultural and Tourism Development during the 15th Five-Year Plan Period Based on the above analysis, the cultural and tourism development during the 15th Five-Year Plan period should focus on the following strategic priorities:

Deepening the integration of culture and tourism and activating the new value of cultural resources: This is the fundamental path. It is necessary to go beyond the simple "culture providing the stage and tourism performing the show", and promote the in-depth coupling and innovative transformation of cultural resources and tourism demands in terms of content, business forms, space and services. We should focus on systematically sorting out and making dynamic use of China's fine traditional culture, revolutionary culture and advanced socialist culture, and create a number of benchmark projects for the integration of culture and tourism that have distinct Chinese cultural symbols and deeply tell Chinese stories. Encourage the development of cultural heritage tourism, intangible cultural heritage experience tourism, red study Tours, literature and film-themed tourism, etc., to make culture "enjoyable to visit, feel, understand and consume".

Strengthening technological empowerment and building a new smart cultural tourism ecosystem: This is the core driving force. Comprehensively promote the digital transformation of the cultural and tourism industry and build a smart cultural and tourism system covering the entire industrial chain. Including: developing immersive, interactive and scenario-based digital cultural tourism products (such as metaverse scenic spots and digital cultural museums); Build a smart service platform integrating functions such as reservation, navigation, payment and feedback, featuring "one device tour" and "one Code Pass". Utilize big data to achieve precise marketing, passenger flow prediction and emergency management; Promote the application of AI in content creation, intelligent customer service, personalized recommendation and other aspects. The goal is to achieve "intelligent management, smart service and immersive experience".

Optimizing spatial layout and promoting regional coordination and rural revitalization: This is an important approach. Implement major national regional strategies and optimize the layout of national-level cultural and tourism functional zones. Give priority to supporting the construction of national cultural parks such as those along the Yangtze River and the Yellow River to become landmark projects for inheriting the national spirit and experiencing the national image. We will vigorously implement the strategy of empowering rural revitalization through culture and tourism, deepen the "rural tourism +" model, cultivate new business forms such as rural homestays, farming experiences, and health and wellness vacations, prevent all villages from looking the same, protect the rural landscape and cultural texture, and transform the green mountains and clear waters and local culture into tangible resources for common prosperity.

Upgrading the consumption system and fostering high-quality products and services: This is the main direction of attack. With the goal of meeting the people's growing demands for high-quality and diverse cultural tourism, optimize the product structure. Vigorously develop vacation tourism, health and wellness tourism, sports tourism, study Tours, cruise tourism, low-altitude tourism, etc. Promote the transformation of traditional scenic spots from a ticket economy to a comprehensive consumption economy, extend the industrial chain, and increase the proportion of secondary consumption. Cultivate and introduce cultural and tourism brands and festival activities with international influence. Improve tourism public service facilities, with particular emphasis on the construction of barrier-free environments, to enhance tourists' satisfaction and sense of gain.

Practicing green development and strengthening the bottom line of ecological and cultural security: This is the prerequisite and foundation. We must unswervingly incorporate the concepts of ecological priority and green development throughout the entire process of cultural and tourism planning, development, operation and management. Strictly assess the impact of cultural and tourism projects on the ecological environment and cultural heritage, and promote green development and low-carbon operation. Strengthen guidance on civilized tourism and promote green consumption. At the same time, we should attach great importance to ideological and cultural security, ensure that cultural and tourism content is positive and healthy, spread positive energy, resist vulgarity, mediocrity and pandering, and protect the security of national cultural resources and data.

三、 “十五五”文旅規劃優化提升的關鍵路徑，為使上述戰略重點落地見效，“十五五”規劃需在以下幾個方面進行系統性優化與提升：

規劃理念與機制優化：從“部門規劃”到“協同規劃”。強化頂層設計與多規合一：將文旅發展規劃更深度地融入國民經濟和社會發展總體規劃、國土空間規劃、生態環境保護規劃等，確保戰略協同、空間保障、政策銜接。健全跨部門協調機制：建立更高層級的文旅融合發展領導小組或聯席會議制度，統籌文化、旅游、發改、自然資源、住建、交通、農業、體育、文物等多部門力量，破解條塊分割、管理分散的難題。推動“政產學研用金”協同創新：搭建常態化合作平臺，鼓勵企業、高校、研究機構、金融機構共同參與技術研發、產品創新、標準制定和人才培養。

產品供給體系優化：從“資源導向”到“創意與市場雙輪驅動”。建立動態的需求洞察與產品迭代機制：利用大數據等手段，實時監測消費趨勢，建立文旅產品創意孵化、市場測試、快速迭代的閉環。鼓勵微創新、快迭代，適應市場快速變化。實施“文旅IP培育與活化工程”：系統梳理和評估地方文化資源，支持有條件的地區打造具有獨特生命力和商業價值的超級文旅IP，并圍繞IP進行全產業鏈開發。扶持中小微文旅企業與主理人：他們是創新的源泉。通過設立專項基金、提供孵化空間、簡化審批流程、加強技能培訓等方式，激發市場微觀主體的活力，豐富產品生態的多樣性。

科技應用與數據治理優化：從“工具應用”到“生態重構與價值挖掘”。制定統一的智慧文旅標準與數據接口規范：打破數據孤島，推動跨地區、跨平臺、跨業態的數據互聯互通和安全有序共享。設立國家級或區域級文旅數字創新平臺：集中力量攻關關鍵共性技術（如超高清、沉浸式音頻、VR/AR/MR體驗優化），降低中小企業應用門檻。加強數據資產管理與價值開發：在確保隱私和安全的前提下，探索文旅數據要素的市場化配置，開發數據產品和服務，賦能行業決策、精準營銷和體驗提升。

市場治理與監管優化：從“被動管理”到“主動治理與信用驅動”。完善以信用為基礎的新型監管機制：建立健全文旅企業及從業人員信用檔案和評價體系，實施分級分類監管，強化守信激勵和失信懲戒。推廣“柔性監管”與“服務式監管”：對新業態、新模式采取包容審慎態度，設置“觀察期”或“沙盒”機制。強化事前事中監管和風險預警，減少“運動式”執法。構建多元共治的消費維權體系：暢通投訴渠道，推廣在線糾紛解決，支持消費者組織、媒體、第三方評價機構發揮監督作用，營造放心消費環境。

可持續發展能力優化：從“經濟效益優先”到“綜合效益平衡”。建立科學的文旅資源承載力評估與游客流量調控體系：推廣分時預約、分區游覽，熱點景區探索實行游客總量控制，保障體驗質量和生態安全。完善生態補償與文化補償機制：對因承擔生態保護和文化遺產保護功能而限制開發的地區，通過轉移支付、項目傾斜、對口支援等方式進行合理補償。將社區參與和利益共享作為項目審批與評估的硬指標：確保本地居民在文旅發展中受益，成為文化遺產的守護者、旅游服務的提供者和文化故事的講述者，實現主客共享、和諧發展。

Iii. Key Paths for Optimizing and Enhancing the Cultural and Tourism Plan during the 15th Five-Year Plan Period To ensure the implementation and effectiveness of the above strategic priorities, the 15th Five-Year Plan needs to be systematically optimized and enhanced in the following aspects:

Planning Concept and Mechanism Optimization: From "Departmental Planning" to "Collaborative Planning". Strengthen top-level design and integration of multiple plans: Integrate the cultural and tourism development plan more deeply into the overall national economic and social development plan, territorial space planning, ecological and environmental protection planning, etc., to ensure strategic coordination, spatial guarantee and policy connection. Improve cross-departmental coordination mechanisms: Establish a higher-level leading group or joint meeting system for the integrated development of culture and tourism, and coordinate the forces of multiple departments such as culture, tourism, development and reform, natural resources, housing and urban-rural development, transportation, agriculture, sports, and cultural relics to solve the problems of fragmented management and decentralized management. Promote collaborative innovation among government, industry, academia, research institutions, users and finance: Build a regular cooperation platform and encourage enterprises, universities, research institutions and financial institutions to jointly participate in technological research and development, product innovation, standard setting and talent cultivation.

Optimization of product supply system: From "resource-oriented" to "dual-wheel drive of creativity and market". Establish a dynamic demand insight and product iteration mechanism: Utilize big data and other means to monitor consumption trends in real time, and establish a closed loop for the creative incubation, market testing, and rapid iteration of cultural and tourism products. Encourage micro-innovation and rapid iteration to adapt to the rapid changes in the market. Implement the "Cultural and Tourism IP Cultivation and Activation Project" : Systematically sort out and evaluate local cultural resources, support regions with conditions to create super cultural and tourism ips with unique vitality and commercial value, and carry out full industrial chain development around ips. Supporting small, medium and micro-sized cultural and tourism enterprises and their managers: They are the source of innovation. By setting up special funds, providing incubation Spaces, simplifying approval procedures, and strengthening skills training, the vitality of micro-market entities can be stimulated and the diversity of the product ecosystem can be enriched. Technology Application and Data Governance Optimization: From "Tool Application" to "Ecological Reconstruction and Value Mining". Establish unified standards and data interface norms for smart cultural tourism: Break down data silos and promote cross-regional, cross-platform, and cross-industry data interconnection and secure, orderly sharing. Establish national or regional-level digital innovation platforms for culture and tourism: concentrate efforts on tackling key common technologies (such as ultra-high definition, immersive audio, VR/AR/MR Experience optimization), and lower the application threshold for small and medium-sized enterprises. Strengthen data asset management and value development

Under the premise of ensuring privacy and security, explore the market-oriented allocation of cultural and tourism data elements, develop data products and services, and empower industry decision-making, precise marketing and experience improvement.

Market Governance and regulatory Optimization: From "Passive Management" to "Active Governance and credit-driven". Improve the new regulatory mechanism based on credit: Establish and improve the credit files and evaluation system for cultural and tourism enterprises and their practitioners, implement classified and graded supervision, and strengthen rewards for trustworthiness and punishments for untrustworthiness. Promote "flexible regulation" and "service-oriented regulation" : Adopt an inclusive and prudent attitude towards new business forms and models, and set up an "observation period" or "sandbox" mechanism. Strengthen pre-event and in-event supervision and risk early warning, and reduce "campaign-style" law enforcement. Build a multi-party governance system for consumer rights protection: Smooth complaint channels, promote online dispute resolution, support consumer organizations, media and third-party evaluation institutions in playing a supervisory role, and create a reassuring consumption environment. Optimization of Sustainable Development Capacity: From "Prioritizing economic benefits" to "balancing comprehensive benefits". Establish a scientific system for assessing the carrying capacity of cultural and tourism resources and regulating the flow of tourists: Promote time-slot reservation and zoned sightseeing, and explore the implementation of total visitor control in hot scenic spots to ensure the quality of experience and ecological security. Improve the ecological and cultural compensation mechanisms: For regions whose development is restricted due to their functions of ecological protection and cultural heritage protection, reasonable compensation should be provided through transfer payments, project preferences, and targeted support. Make community participation and benefit sharing the hard indicators for project approval and evaluation: ensure that local residents benefit from cultural and tourism development, become guardians of cultural heritage, providers of tourism services and narrators of cultural stories, and achieve shared benefits and harmonious development for both hosts and guests.

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