十八届三中会对我国农村土地制度改革进行了论述，指出了农村承包土地、集体经营性建设用地和宅基地的改革方向，这为研究生产要素（土地）的自由流动是否有利于提高生产效率和实现社会公平提供了契机。长期以来，城乡二元的土地制度阻碍了城乡要素的自由流动，制约了我国农村与小城镇的发展，导致农业生产效率低下，小城镇人口难以集中、产业难以集聚和功能难以完善。本文立足土地制度改革的大背景，在梳理土地资源优化配置理论和我国土地流转政策演变的基础上，通过总结地方推进城乡统筹与新农村建设中土地流转与整理的实践经验，提出未来一段时间通过优化农村土地资源配置促进村镇发展与镇域空间合理布局的路径与分析框架，即通过农村承包地的流转促进农业现代化与乡村旅游业发展，通过集体经营性建设用地的流转与整理促进村镇产业的集聚，以土地增减挂钩为平台通过农村宅基地的流转与整理促进人口集中居住与小城镇基础设施与公共服务设施的完善，最终实现村镇农业现化化、工业化与城镇化的协调，村镇生产、生活与生态空间的统一。以此基础上，选取城郊和传统农村地区两个典型村镇为案例，对文章的观点加以论证分析，并发掘不同经济社会背景下各发展路径的优化组合与重点。研究结论如下：第一，从理论层面上看，土地作为一种生产要素，其合理流转有助于重整经济要素，实现村镇经济增长。不论是农用地的流转还是集体建设用地的流转都有助于发挥土地的纽带作用，在更大的范围内实现生产要素如土地、资本、劳动力、技术的再整合，从而提高生产效率，促进村镇经济的增长。第二，农村承包地的流转、宅基地的流转与农村集体经营性建设用地流转存在协同关系。我国农村承包地的流转得到了更多的法律支持与政策鼓励，具有资本优势的城市人口进入农村，通过承包地流转进行农业适度规模经营，他们必然要解决居住、农产品储存等问题，从而带动了农村住宅市场的发育及集体经营性建设用地的流转。我国法律应赋予农村集体建设用地转让的权利，保障城乡要素的双向流动，促进城乡一体化发展。第三，土地流转与土地增减挂钩政策相结合，实现了在镇域范围内工业化、城镇化与农业现代化的协调。在许多非农化程度高的小城镇，农村居民已经具备了流转承包地和到小城镇居住、享受小城镇公共服务的条件。在此条件下，政府通过制定土地增减挂钩政策，为小城镇与新型农村社区的建设提供了资金来源，完善了小城镇基础设施与公共服务设施，促进了小城镇人口集聚。

The Third Plenary Session of 18th CPC Central Committee decided to reform rural land system, which provides a chance to study whether production factors’ free flow can improve production efficiency and realize social justice. For a long time, urban and rural land system hindered the production factors’ free flow between urban and rural areas and restricted the development of our country's rural areas and small towns, leading to low efficiency of agricultural production, low concentration of population, low industry agglomeration and imperfect service functions in small towns. Based on summarization of the theories of land allocation and the policies and practices of land transfer, this paper proposes development path of the rural and small towns under the background of land system reform, namely to promote the agricultural modernization and development of rural tourism through transaction of rural contracted land, to enhance the population concentration and industry agglomeration through transaction of rural collective construction land and plus and minus hook between urban and rural construction land, which can provide funds for the construction of rural community and housing, infrastructure and public service facilities in small towns. The coordination of agricultural modernization, industrialization and urbanization and the unity of production, living and ecological space in villages and small towns will be achieved. Based on the analysis, two typical cases respectively distributed in suburban and traditional rural areas are chosen to prove the argument mentioned above and to find combination of the different paths under different social and economic background. Conclusions are as follows:First, theoretically land, as a kind of production factor, can improve production efficiency and promote rural economic growth if it can be transacted reasonably. The transactions of agricultural land and rural collective construction land can help to integrate capital, labor, and technology in a large scale, which will result in rural economic growth. Second, the transactions of rural contracted land and rural collective construction land are mutually influenced. The transfer of rural contracted land in China has got more legal support and policy encouragement. As a result, an increasing number of people from cities go into rural and rent rural contracted land, which promotes the transaction of house and storage, as they must have a place to live and a place to store their agricultural appliances and productions. In order to promote the free and mutual flow of urban and rural factors and the integration of urban and rural areas, the right to transfer rural collective construction land should be entitle. Third, the combination of land transaction and urban and rural construction land’s plus and minus hook policy can coordinate the industrialization, urbanization and agricultural modernization within small towns. In some small towns with high level of non-agriculture in suburbs and traditional agriculture area, rural residents are prepared to move to small towns and share the public facilities conveniently. Under this condition, the government should implement plus and minus hook policy between urban and rural construction land, as it can help to provides funds to realize the population agglomeration and the improvement of infrastructure and public service facilities in villages and small towns.