This paper, based on a bottleneck in three rounds of land utilization planning, discusses the major issues in the existing land utilization planning system, including: (1)incomplete and unclear planning system, (2)ambiguous tasks between different levels, and (3)a small link to trade planning and division. A preliminary framework regarding planning system construction is presented at three levels in land planning, land utilization planning and land utilization special planning with their internal structures and guidance, aiming to provide a reference for establishing land utilization planning system in China.