Abstract: The marketing of collective commercial construction land is an important way to realizethe empowerment of collective land return rights and promote the integrated development ofurban and rural areas. However, Bejings pilot project has encountered multiple challenges in theimplementation of territorial space use control. Build "control define land development" analysisframework, on the basis of national spatial use control "planning-construction-governance"chain, the local government control of land development into planning, implementationpermission, management supervision and so on three dimensions, clear the influencing factors ofits operation, thus explain the market challenge and its formation mechanism. It is found thatalthough the entry of collective land promotes the empowerment of the nominal developmentright of collective land, the exercise of local government control causes three weakening of theactual development right of collective land. The weakening of this power lies in the dilemma ofthe local government under the transformation of development concept, the priority orientationof local finance under the constraint of construction indicators, and deepening the penetration ofgovernment supervision under the resource feedback of rural areas. Put forward theimplementation path and supporting policies of the control of territorial space for urban andrural integration.