随着改革开放和城镇化深入推进，中国农村人口以劳动力迁移的方式大规模涌入城镇，相应地农村人口流出导致“空心村”大量出现，以宅基地闲置为表征的农村土地资源浪费和低效利用问题愈发凸显。当前，正处于乡村振兴战略重要推进期，开展闲置宅基地盘活利用工作有利于完善农村土地制度，并为乡村振兴战略提供土地供给。中央政府对农村闲置宅基地高度关注，已出台多项政策支持盘活利用闲置宅基地。但是，农村闲置宅基地治理是一项长期且复杂的系统工程，涉及到经济、社会等多方位跨领域政策，单纯依靠土地政策无法为农村发展提供有效支撑。目前已有研究多是关注于宅基地退出、三权分置政策研究以及闲置宅基地盘活利用经验性研究，缺乏从整体视角分析闲置宅基地盘活利用政策的研究。

本研究从政策整合视角出发，采取文本分析和社会网络分析相结合的研究方法，在政策工具理论和社会网络分析等理论基础上，对中央层级农村闲置宅基地盘活利用政策整合目标、行动者和政策工具展开单维和多维交叉分析。第一，分析中央层面农村闲置宅基地相关政策的基本特征。基于政策发文年份、发文类型以及发文主体分析，从而建立对农村闲置宅基地政策的整体性认知。第二，借助Nvivo11 Plus和UCINET6软件对政策文本内容展开分析，构建农村闲置宅基地盘活利用政策整合分析框架。政策文本分析主要从两方面出发：一是按照政策整合分析框架对政策文本进行单维分析（X、Y、Z）；二是将分析框架三要素相结合展开政策内容双维分析（X-Y、X-Z、Y-Z）。

通过对政策文本由外及内的双层分析，得出以下四点结论：一是政策数量逐年增多，政策类型较为单一，发文主体呈现广泛性特征；二是农村闲置宅基地盘活利用政策与其他政策存在跨领域多目标整合（经济、社会、生态），较为重视农村经济发展，但政策总体布局完善性有待提高；三是行动主体多元化，少数行动者间形成核心合作关系，主体间合作不足；四是政策整合目标与政策工具分配失衡，行动者网络构成和政策工具使用受目标实践路径影响。根据上述结论，提出四点建议：引导相关行动者参与政策制定工作、丰富政策发文类型、细化政策引导；系统谋划农村闲置宅基地盘活利用政策空间布局、强化顶层设计；强化行动主体多元化和联动性、推动形成行动者间协作型关系形成；优化政策工具使用结构，提升政策整合目标-工具之间的匹配度，科学整合政策工具。

With the deepening of reform and opening up and urbanization, China's rural population has been massively flocking to cities and towns in the form of labor migration, and accordingly, the outflow of rural population has led to the emergence of a large number of "hollow villages", and the problem of wasteful and inefficient utilization of rural land resources, characterized by idle residential bases, has become more and more prominent. At present, we are in an important period of promoting the rural revitalization strategy, and the work of revitalizing and utilizing idle residential bases is conducive to improving the rural land system and providing land supply for the rural revitalization strategy. The central government is highly concerned about the idle residential bases in rural areas and has issued many policies to support the revitalization and utilization of idle residential bases. However, the management of unused rural residential bases is a long-term and complex systemic project, involving economic and social policies in multiple fields, and relying solely on land policies cannot provide effective support for rural development. At present, most of the existing studies focus on the withdrawal of residential bases, research on the policy of separation of three rights, and empirical research on the revitalization and utilization of idle residential bases, but there is a lack of research that analyzes the policy of revitalizing and utilizing idle residential bases from an overall perspective.

From the perspective of policy integration, this paper adopts a research method combining textual analysis and social network analysis, and conducts a single-dimensional and multi-dimensional cross-analysis on the policy integration objectives, actors and policy tools of the central level rural idle residential bases revitalization and utilization based on the theories of policy tool theory and social network analysis. First, we analyze the basic characteristics of the policies related to idle rural residential bases at the central level. Based on the analysis of policy issuance year, issuance type and issuing subject, thus establishing a holistic cognition of rural idle residential base policies. Second, we analyze the content of the policy text with the help of Nvivo11 Plus and UCINET6 software to build an integrated framework of rural idle house base revitalization and utilization policy. The policy text analysis is mainly from two aspects: firstly, the policy text is analyzed unidimensionally (X, Y, Z) according to the policy integration analysis framework; secondly, the three elements of the analysis framework are combined to develop a two-dimensional analysis of the policy content (X-Y, X-Z, Y-Z).

Through the double-layer analysis of the policy text from outside to inside, the following four conclusions are drawn: first, the number of policies increases year by year, the policy type is relatively single, and the issuing subjects show extensive characteristics; second, there is cross-field multi-objective integration (economic, social and ecological) between the policy of revitalizing and utilizing idle rural residential bases and other policies, and more importance is attached to rural economic development, but the overall layout perfection of the policy needs to be improved; third, the action The main actors are diversified, a few actors form core cooperation relationship among themselves, and the cooperation among subjects is insufficient; fourth, the distribution of policy integration objectives and policy tools is unbalanced, and the composition of actor network and the use of policy tools are affected by the target practice path. According to the above conclusions, four suggestions are put forward: to guide relevant actors to participate in policy formulation, enrich the types of policy issuance, and refine policy guidance; to systematically plan the spatial layout of the policy on the revitalization and utilization of idle rural residential bases and strengthen the top-level design; to strengthen the plurality and linkage of action subjects and promote the formation of collaborative relationships among actors; to optimize the structure of policy tool use, to improve the match between policy integration objectives and tools, and to scientifically integrate policy tools. The policy tools should be scientifically integrated.