“Making the most of the land” is the prerequisites of optimizing the allocation of land and space resources. “How to use” is the core of industrial land supply policies. Due to the scarcity of land resources，for the needs of the strict land use control，the government，as the land owner，supervisor，and parties to the contract，on one hand，cannot do whatever that not authorized by laws，to avoid the improper intervention to exercise land user’s rights which belong to market behavior. On the other hand，the government should beware what is not prohibited by laws is permitted，preventing abuse of rights by land user. As a result，the government should take measures including both administrative and civil methods to the acquisition，the exercise，and the extinction of land user’s rights，the restriction，the supervision. By excavating and analyzing the land user’s rights，we can explore the administrative elements and legal effects in the restriction of rights，in order to improve the industrial land supply policies in accordance with market rules at the institutional level.