Abstract: Under the framework of spatial governance of whole area and whole elements with town as unit, discussing the efficiency and justice between county-level's intensive guidance and town's basic demands is important. An empirical discussion is conducted about the D and X towns located in the suburbs of H County, Zhejiang Province, focusing on the process of ‘county-town interaction’. It is found that the intensive guidance from H County makes towns bear great pressure of land consolidation. However, due to the interactive planning process, developed Non-agricultural economy, and pursuit of high-quality life by farmers, D and X towns can seek a balance between the lower requirement limit from the county-level and the upper limit of their own potential, realizing the coexistence between their own development demands and the efficient guidance form the H County. However, diverting large number of indicators from townships will not necessarily benefit overall development of region, and will put additional economic pressure on towns.