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To fully leverage Zeshi Consulting Leveraging its role as a platform—“think tank, bridge, and link”—we are building the Zeshi brand for comprehensive land consolidation projects across the board. Together, we will explore the key challenges and difficulties encountered in carrying out comprehensive land consolidation efforts, pooling wisdom and reaching consensus from all parties. We will periodically issue documents from a practical perspective, conducting research and analysis on real-world case studies and operational models of comprehensive land consolidation across various regions. Furthermore, we will analyze the critical points in exploring pathways for comprehensive land consolidation from several angles—including industry introduction, funding sources, models for engaging social capital, construction content, policy support, and addressing pain points and challenges—providing a platform for practitioners from all sectors to share and exchange insights.

 

In the current economic climate, economic growth is the panacea for solving all problems. Carrying out comprehensive land consolidation across the board is also a way to boost productivity. More importantly, we need to take a top-down approach to overall planning and coordination, providing effective guidance. The implementation of these projects must be forward-looking, featuring long-term mechanisms and new growth drivers. Even more crucial is to introduce industries that embrace sustainable development practices.

 

This article explores in depth the pathways for introducing industries into comprehensive land consolidation projects across entire regions. By analyzing the background and necessity of such initiatives, it clarifies the critical role that industry introduction plays in rural revitalization and optimizing land spatial planning. The article provides a detailed classification of industry introduction types, including modern agriculture, cultural and tourism integration, and ecological industries. It also dissects current challenges in industry introduction—such as issues related to planning, funding, technology, and talent—and proposes targeted implementation recommendations, including strengthening planning guidance, innovating funding mechanisms, and promoting industrial integration. Finally, through case studies, the article showcases successful experiences and practical outcomes from different regions in the context of comprehensive land consolidation, offering comprehensive and insightful references for related research and practice.

 

 

I. Background and Necessity

Comprehensive land consolidation across the entire territory is a crucial initiative for promoting rural revitalization, optimizing land spatial planning, and advancing ecological civilization. As an important tool within the land spatial planning system, its core lies in the coordinated promotion of agricultural land reorganization, construction land reorganization, and ecological restoration, thereby reshaping the spatial layout of production, living, and ecological areas and addressing systemic challenges such as fragmentation of farmland in rural areas, inefficient use of construction land, and degradation of ecological spaces. At its essence, this approach involves reclaiming and reallocating spatial resources, leveraging regional characteristics to attract high-value-added industries, and ultimately forming... A virtuous cycle of “rectification—value enhancement—reinvestment.” Conducting comprehensive land remediation across the entire region is not only an inevitable requirement imposed by the new development philosophy on land remediation efforts, but also the fundamental trend driving the development of land remediation in the new era. In this process, the introduction of industries plays a crucial supporting role, injecting fresh vitality into the redeveloped land and enabling the organic integration of economic, social, and ecological benefits.

Policy-driven: Since Since the Ministry of Natural Resources launched the pilot program in 2019, comprehensive land consolidation across entire regions has been explicitly recognized as a “spatial governance tool” for rural revitalization. Through policies such as the "Rural Revitalization Strategic Plan," emphasis has been placed on ensuring that the introduction of industries synergizes with farmland protection and ecological restoration. The "Comprehensive Rural Revitalization Plan (2024–2027)" and successive No. 1 Central Documents have clearly called for the establishment of a modern rural industrial system and the deepening integration of primary, secondary, and tertiary industries in rural areas. In line with the spirit of these documents, during the upcoming 15th Five-Year Plan period—and even beyond—amidst slowing urbanization and decelerating GDP growth rates, vast rural areas—home to over 500 million people and encompassing 6.5 billion mu of collectively owned land (according to statistics, as of the end of 2019, China’s total area of collectively owned land was 6.55 billion mu, with book assets totaling 6.5 trillion yuan, of which 3.1 trillion yuan were operational assets)—will continue to see an influx of supportive policies, leading industries, financial resources, and high-quality development resources, ultimately achieving comprehensive revitalization of rural industries.

Rural Revitalization Needs: The prosperity of industries is the foundation for rural revitalization. Comprehensive land consolidation across entire regions, by optimizing the allocation of land resources, provides space and platforms for the development of rural industries, helping to attract factors such as talent, capital, and technology to rural areas and thereby promoting the modernization of agriculture and rural areas. The land indicators released through such consolidation—such as newly reclaimed farmland and reclaimed construction land—are the basis for supplying industrial land. Meanwhile, the revenues generated by these industries feed back into the funding chain for land consolidation, creating a self-sustaining cycle. A positive cycle of “land remediation—industrial value enhancement—urban-rural integration.”

Social demand: Under the dual structure of urban and rural areas, rural hollowing-out coexists with industrial spillover from cities, while land use suffers from fragmentation and inefficiency—issues that constrain the region’s sustainable development. By carrying out comprehensive land consolidation across the entire territory and integrating land resources, we can free up space for industrial development, which will help establish a scientifically sound and rational spatial layout for land use, promote population return and in-situ urbanization, as exemplified by Zhejiang Province. The “Thousand Villages Demonstration” project has boosted the rate of rural entrepreneurs returning home to start businesses by 23%.

II. Types of Industry Introduction

 

In December 2024, the Ministry of Natural Resources released the “Implementation Guidelines for Comprehensive Land Consolidation Nationwide (Trial)” (hereinafter referred to as the “Guidelines”). The “Guidelines” clearly specify that sub-projects under comprehensive land consolidation nationwide include, but are not limited to: agricultural land remediation, reorganization of construction land, ecological protection and restoration, preservation of distinctive cultural heritage, and introduction of rural industries. Among these, the introduction of industries is based on the unique resource endowments of rural areas and centered on perfecting mechanisms for linking interests. It involves deeply exploring the multiple functions and values of agriculture and rural areas—including ecological conservation, leisure tourism, cultural experiences, and health-oriented elderly care—so as to promote agricultural modernization and the integrated development of primary, secondary, and tertiary industries in rural areas.

Based on domestic and international practical experience, the introduction of industries should be grounded in local resource endowments to form... A Diversified Approach of “Ecological Foundation + Industrial Distinctiveness”:

Adaptation Logic:

In ecologically sensitive areas, prioritize a low-intensity development model that integrates agriculture, culture, and tourism—for example, Anji in Zhejiang. "Bamboo Forest Economy + Homestay Cluster";

The suburban expansion zone can accommodate industries such as the digital economy and science-and-tech incubation that are spilling over from the city—for example, the Nantong Yangtze River Estuary Industrial Collaboration Zone through... “Two-way flying zones” attract high-tech enterprises;

Traditional agricultural regions need to strengthen the extension of primary production, develop sophisticated processing of agricultural products and cold-chain logistics, and avoid falling into the trap of homogeneous tourism.

 

III. Current Issues in Industry Introduction

Five major contradictions are commonly found in current practice:

1. Weak guidance from higher-level planning documents: Although the land and spatial plans at the municipal and county levels have largely been completed, the plans at the district and county levels tend to be more macro in nature and thus struggle to directly guide the implementation of specific industrial projects. Moreover, land and spatial plans for some townships remain unfinished, and the preparation of village plans is particularly challenging, leading to difficulties in site selection and project implementation.

2. Insufficient support from social funding: Local governments in rural areas have limited financial resources and rely primarily on issuing local government bonds to raise funds. However, the issuance quota for these bonds is limited, making it difficult to meet the funding needs of industrial projects. Moreover, the public-benefit nature and market risks associated with rural industrial projects discourage private capital from actively participating.

3. Low industrial value-added: In most rural areas, the primary economic activities are traditional agriculture, forestry, animal husbandry, and fisheries. Sales of agricultural products mainly consist of raw commodities, with a low rate of deep processing. For example, in China, the deep-processing rates for grains and oils, fruits, beans, meat and eggs, and aquatic products are only... Around 30%, far below the over 70% level seen in developed countries. Meanwhile, farmers’ profit margins from cultivation continue to shrink, and income from growing grain is significantly lower than earnings from working in urban areas.

4. Low level of industrial technology: China’s agricultural production technology is relatively underdeveloped. In the central and western regions, farmers largely rely on traditional, decentralized, manual cultivation methods with low levels of mechanization. According to statistics, the countries with the highest farm mechanization rates globally are developed nations such as the United States and Europe, where the mechanization rate reaches... 95%, whereas in China, the average cultivable area per rural laborer typically ranges from about 5 to 10 mu. By adopting large-scale mechanized operations, the per capita cultivable area can exceed 200 mu.

5. Insufficient reserve of professional talent: Most remote areas in the Midwest lack educational resources such as research universities and colleges, putting them at a disadvantage when it comes to attracting talent. For example, taking Sichuan as an illustration, In 2024, Sichuan had 830,000 candidates taking the college entrance examination, yet the rate of students admitted to bachelor’s programs was only 26.2%, placing the province among the lowest in the country. Meanwhile, due to factors such as salary and working conditions, college graduates are reluctant to seek employment in rural areas, leading to a shortage of professional talent in rural regions and thereby hindering the growth and development of local industries.

IV. Implementation Recommendations

To address the above-mentioned issues, systematic innovation is needed—from top-level design to implementation mechanisms.

1. Prioritize planning: Scientifically define the direction of the industry.

According to “On Studying and Applying” The “Ten Million Projects” Experience Enhancement Notice on Improving the Quality and Effectiveness of Village Planning requires that, based on local resource endowments and asset relationships, field surveys be conducted to explore the natural resources and historical and cultural significance of villages, highlight regional characteristics and comparative advantages, and coordinate land use, ecological protection, and industrial layout, thereby avoiding the phenomenon of “all villages looking the same.”

2. Government-led + Market-driven: Building a Multi-stakeholder Collaboration Mechanism

The government leads the planning and infrastructure development, while enterprises secure initial investment through policy-based financial funds and special-purpose bonds. Subsequently, they bring in professional operators to develop modern agricultural parks, homestay clusters, and other related business models. In this way, the government and the market join forces to drive development.

●Policy-based financial funds: According to the “Notice from the General Office of the Ministry of Natural Resources on Supporting the Accelerated Promotion of Comprehensive Land Remediation and Ecological Protection and Restoration through Policy-Based Financial Funds,” policy-based financial institutions may provide financial support for comprehensive land remediation and ecological protection and restoration projects by offering credit services to these projects. It is encouraged to bundle public-benefit projects with those that are closely related and capable of generating operational cash flows. Implement “fat-and-lean combination” in a coordinated manner to ensure that the implementing entities’ investment costs and reasonable returns are safeguarded.

●Local government special bonds: According to the "Opinions of the General Office of the State Council on Optimizing and Improving the Management Mechanism for Special Bonds Issued by Local Governments," those not included... All projects listed on the “Negative List” are eligible to apply for special bond funds. The comprehensive land consolidation project covering the entire region is not included on the Negative List and can, therefore, apply for special bond support based on actual needs.

● Policy funds from various national departments: Apply for central and provincial subsidies and special funds through the policy guidelines of various departments, including agriculture and rural development, transportation, water resources, and ecological environment.

3. Villager Participation: Building a Mechanism for Shared Benefits

In carrying out comprehensive land remediation across the entire region, we must adhere to the principle of putting the people first and promoting co-construction and shared benefits. We should fully respect the wishes of the masses and give full play to the roles of rural collective economic organizations and village committees.

The main forms of villagers’ participation are:

First, village collectives consolidate the use of resource elements such as land and housing by passing them along or contributing them as equity stakes in operations. After the collective receives rental income or operational profits, it distributes these earnings, effectively reducing the integration costs for the entities undertaking the renovation.

Second, the project operator will guide villagers in investing in and upgrading their own homes. After completion, these renovated homes will be developed into distinctive homestays and other similar businesses, serving as a valuable complement to the overall project operations.

Third, the revitalized agricultural industrial parks and rural homestay projects have created a large number of employment opportunities, providing jobs for local villagers and some college graduates returning to their hometowns. Job opportunities for “employment close to home”; fourth, deeply explore the local natural environment, historical and cultural significance, and folk customs, strengthen the involvement and locality of indigenous culture, and imbue it with unique cultural value.

4. Industry Selection: Extend the industrial chain to enhance efficiency.

According to the “Guiding Opinions of the Ministry of Agriculture and Rural Affairs on Accelerating the Cultivation and Development of the Entire Agricultural Industry Chain,” we will expand primary processing of agricultural products and support new types of business entities in developing capabilities such as cleaning and sorting, drying and storage, sterilization and disinfection, pre-cooling and fresh-keeping, ready-to-eat vegetable cutting, grading and portioning, and product packaging. We will also carry out primary processing methods like drying, pickling, and cooking to reduce losses and enhance efficiency. We will upgrade the deep processing of agricultural products by guiding large agricultural enterprises to develop processed foods that are nutritionally balanced, health-promoting, and derived from both food and medicine sources, as well as non-food processed products that are high-quality, affordable, and practical, thereby increasing the value-added potential of agricultural product processing and transformation. We will promote the comprehensive utilization of by-products by advancing the circular, full-value, and tiered use of processing by-products, turning waste into valuable resources and transforming harm into benefit.

5. Technology Empowerment: Fostering New Quality of Productive Forces for Agricultural Science and Technology Development

According to the Key Areas for National Agricultural Science and Technology Innovation ( (2024–2028), focusing on ten key areas including the development of new agricultural varieties, enhancement of arable land quality, and research and development of agricultural machinery and equipment. For example, in the area of developing new agricultural varieties, efforts will be directed toward breeding high-yield, high-quality rice, wheat, and corn varieties that are multi-resistant, widely adaptable, cost-effective, and efficient; salt- and alkali-tolerant crop varieties; high-oil, high-yield soybean varieties; high-yield, high-oil rapeseed varieties with short growth cycles; as well as high-quality, high-yield, multi-resistant, and widely adaptable economic crops and forage varieties.

6. Strengthen talent support: Cultivate a team of versatile, application-oriented professionals.

Strengthen guidance to encourage various vocational colleges to actively and proactively integrate into local development. Conduct in-depth research on local rural industrial types and the current status of talent resources, identify their unique strengths and distinctive features, and build a comprehensive, end-to-end service system that empowers rural revitalization industries. At an appropriate time, establish teacher-student technical service teams led by experts and professors from vocational colleges, bringing education and technology directly to rural areas. Provide technical services and guidance to rural enterprises, farmer cooperatives, and individual households, thereby fully supporting the sustainable development of rural industries.

V. Analysis of Typical Cases

Case 1: Chongqing’s “Comprehensive Rectification × Integration of Primary, Secondary, and Tertiary Industries” Model

(This case was selected as a typical example of comprehensive land consolidation across the entire region by the Ministry of Natural Resources.)

Pain point:

1. Inefficient and Fragmented Land Use: Rural farmland is severely fragmented—indeed, the fragmentation rate in four villages reaches as high as 62%. Land resources are being used inefficiently, with agricultural land lying idle and abandoned. 2. Backward Infrastructure Development: Production and living infrastructure is inadequately developed; rural roads, irrigation systems, and other essential infrastructure remain weak, thereby hindering the development of rural industries and the improvement of residents’ quality of life. 3. Deteriorating Ecological Environment: The rural ecological environment is poor, with black and odorous water bodies persisting and overall ecological quality declining. Systematic ecological restoration is urgently needed. 4. Cultural and Industrial Challenges: Historical cultural relics and traditional courtyards in rural areas are falling into disrepair due to a lack of effective protection and rational utilization. The development foundation for specialty industries such as citrus cultivation is weak, lacking efficient management and operation, making it difficult to support sustainable development.

Implementation path:

1. Planning Leadership: Develop a practical village plan integrating “ecological restoration, rural revitalization, and urban-rural integration,” breaking down village boundaries, consolidating resources from four villages, and optimizing the spatial layout of the “three types of spaces” (production, living, and ecology). 2. Land Consolidation and Ecological Restoration: Implement agricultural land consolidation following the principle of “moving orchards uphill and high-quality farmland downhill,” reorganizing inefficient garden plots, adding new arable land, and improving its quality. In the agro-culture-tourism expansion zone, carry out conservation and restoration projects for forests and water systems. 3. Industrial Support and Cultural Heritage Preservation: In the core agro-culture-tourism area, protect and restore historical relics, develop red culture education, and promote agro-culture-tourism research and study industries. Continue to strengthen and expand the citrus industry, and build smart orchards. 4. Reform and Cooperation: Explore the “three transformations” reform in rural areas, adopting the model of a “single center with four-department joint cooperative” to activate idle rural resources such as land and housing; attract social resources and collaborate on the development of cultural and tourism industries.

Project outcomes:

1. Natural and Land Resources: An additional 102 mu of cultivated land has been added, resulting in an increase in the quantity of cultivated land in the region, improved land quality, and optimized land use patterns, thereby enhancing the efficiency of agricultural land resource utilization. The rural ecological environment has significantly improved, with elimination of black-and-stinky water bodies and a boost in ecological diversity.

2. Economic and Social Benefits: In 2023, the village collective income reached 1.41 million yuan, with each household seeing an increase in income of approximately 2,000 yuan. More than 120 young workers have been attracted to return to their hometowns to start businesses. The development of a distinctive citrus industry and the launch of tourism routes have boosted the rural economy.

3. Cultural and Ecological Benefits: By preserving and restoring historical relics—such as the former residence of Zhou Gongzhi—we are realizing the value conversion of our historical and cultural resources. Meanwhile, the overall rural environment has been improved, earning the town the titles of “Historical and Cultural Town of Chongqing Municipality” and “Demonstration Town for Ecological Civilization.”

Case 2: Hubei’s “Comprehensive Remediation × Ecological Value Realization” Model

(This case was selected as one of the first batch of typical cases for the nationwide pilot program of comprehensive land consolidation across entire regions.)

Pain point:

1. Land Fragmentation and Inefficient Use: Before the remediation, farmland in the project area was scattered and disorganized, with severe siltation in field ditches. The fragmentation of cultivated land made it difficult to promote agricultural mechanization, resulting in low agricultural productivity. Meanwhile, natural villages exhibited high “hollowing-out rates,” and some aging enterprises occupied land inefficiently, thereby hindering the intensive use of land resources. 2. Ecological Degradation and Lagging Infrastructure: Wetland protection is inadequate, posing ecological risks in the Fu River and Lun River basins. Rural living environments are cluttered, and infrastructure such as transportation and water conservancy systems are underdeveloped, making it challenging to support the development of modern agriculture and tourism. 3. Limited Development Space: As the only municipal district in Xiaogan City, Xiaonan District faces a bottleneck due to insufficient land-use indicators. There is an urgent need to reclaim construction land through land remediation and release land-use indicators to support regional economic development projects.

4. Low Farmer Participation and Resistance to Relocation: Some villagers, due to their deep attachment to their ancestral lands or lack of understanding of the policies, initially showed resistance toward relocation and land transfer. These conflicts need to be resolved through careful mobilization and robust policy support.

 

Implementation path:

1. High-level coordination and policy guidance: A leading group headed by the “top officials” at both the municipal and district levels has been established, creating a mechanism characterized by “government leadership, departmental collaboration, and social participation.” Documents such as the “Accelerating Comprehensive Land Consolidation Across the Entire Region” have been formulated to standardize project management. 2. Through the “Six Coordinations and Six Promotions” strategy, six major areas—including transportation, arable land protection, ecological restoration, and industrial development—are coordinated. For example, the “Three Living Water Projects” are implemented to restore wetlands, and the “Five Smoothness Projects” are launched to promote the integration of Xiaohan into a single urban area. 3. Scientific planning and resource integration: The “Regional Village Layout Plan” has been prepared to optimize the spatial arrangement of production, living, and ecological areas. Remediation tasks are refined down to specific plots, with newly reclaimed farmland accounting for no less than 5% of the original farmland area. Agricultural funds are integrated, and social capital is attracted, exploring a “Four-Resource Conversion” model (transforming resources into assets, assets into capital, and capital into funds) to leverage rural revitalization financing. 4. Ecological restoration and industrial integration: Centered on Zhuhu National Wetland Park, 2,000 mu of large wetlands and 1,200 mu of polder fields are restored, creating an eco-tourism landscape that welcomes 100,000 visitors annually and generates tourism revenue of 20 million yuan. The “Zhuhu Glutinous Rice” industrial chain is developed, with a 40,000-mu glutinous rice base established, driving downstream enterprises—such as Shuanglusu Rice Wine and Hua Nong Meng Wine—to form a food industry worth tens of billions of yuan, thus achieving the goal of “using agriculture to boost tourism and using tourism to revitalize agriculture.” 5. Harmonious relocation and shared benefits: Reasonable compensation standards have been set, with priority given to constructing high-standard resettlement communities to ensure villagers’ housing arrangements. Farmers’ concerns are addressed through land transfer and employment assistance. Village collective cooperatives have been established, distributing profits according to equity shares, encouraging villagers to participate in industrialized operations—for instance, by developing “immersive consumption” experience projects to enhance the value of ecological products.

Project outcomes:

1. Improving the Quality of Cultivated Land and Enhancing Ecology: After remediation, the area of high-quality cultivated land has increased, fragmented farmland has been eliminated, and demonstration zones have been established where “small plots are consolidated into larger ones and low-efficiency fields are transformed into high-yield fields,” significantly boosting grain production capacity. Wetland ecological restoration has achieved remarkable results, leading to improved water quality in the Fu River and Lun River basins and creating an ecological landscape characterized by “blue skies and green lands.”

2. Industrial Upgrading and Economic Growth: The level of agricultural modernization has been enhanced, and the area planted with glutinous rice has expanded to 80,000 mu, driving the integration of primary, secondary, and tertiary industries—including processing and tourism—and boosting the annual comprehensive output value to over 100 million yuan. The reallocated construction land indicators are supporting the development of industrial parks, providing space for projects such as the Hanxiao Industrial Park in Xiaonan District and thereby accelerating local economic growth.

3. Improved Livelihoods: The newly built residential communities are fully equipped with supporting facilities, significantly enhancing villagers’ living conditions and enabling “in-situ urbanization.” Public satisfaction has reached over 90%.

4. Model Innovation and Demonstration Effect: As one of the pilot programs for comprehensive land-space remediation across the entire territory, this initiative has developed a “1+N” integrated remediation model (where one remediation project drives N associated industrial and ecological benefits). It was selected as one of the first batch of typical cases in the national pilot program for comprehensive land remediation across the entire territory, providing a valuable reference for similar projects nationwide.

VI. Conclusion

The introduction of industries into comprehensive land remediation across the entire region is by no means a simple matter. Rather than simply “releasing land for investment attraction,” we need to achieve deep synergy among people, land, industries, and rights through systematic design that involves spatial restructuring, innovative property rights models, and digital empowerment. In the future, we must further enhance “policy precision, model innovation, and operational sustainability,” ensuring that every plot of land finds the most suitable industrial expression and that every rural area can tell its own unique story of revitalization.

Note: Based on publicly available policy documents and typical cases, and drawing on industrial economics and spatial planning theories, this article proposes an implementation approach that is both practical and innovative, offering a reference for similar projects. Zeshi Consulting leverages its interdisciplinary think-tank strengths to integrate expert teams from fields such as planning, finance, and ecology, providing local governments with one-stop solutions—from policy interpretation to project operation.

If your region is seeking professional, comprehensive land consolidation services, Zeshi Consulting Company will be your trusted partner. We have a highly qualified and specialized team that can provide you with end-to-end services—from project planning and design to implementation and operation—helping your region achieve the noble goal of rural revitalization.