Abstract: Guided by the Rural Revitalization Strategy, Shanghai has introduced a series of policies to promote rural construction, which have improved rural development and spatial quality. Yet as the multiple values of Shanghai's countryside have become increasingly visible, existing rural construction policies remain insufficient to support the higher strategic expectation that rural areas should serve as important carriers of urban core functions and strategic spaces for enhancing urban capacity and core competitiveness. In practice, these policies still encounter operational constraints that affect the efficient delivery of rural construction activities, impede the optimization of rural spatial layouts, and hinder the inflow of development factors into rural areas. From the perspective of value generation, and drawing on practical cases of rural construction in Shanghai, this paper examines policy difficulties across three stages: pre-construction regulatory control, interdepartmental coordination during construction, and post-construction operation and maintenance. It identifies three corresponding value- generation dilemmas: weak local adaptation, insufficient coordination and integration, and inadequate institutional support. Finally, from the dimensions of value cognition, value synergy, and value consensus, the paper proposes planning responses through the construction, formulation, and implementation of the rural planning system.