By constructing a theoretical framework based on the perspective of social consensus to examine the institutional change,this paper provides a reference for promoting the deepening reform of land increment revenue distribution system and the modernization of national governance system and governance capacity.The results show that institutional change and social consensus interact and evolve dynamically,and through the negative effect on transaction costs,social consensus plays an important role in the “benefitcost” dynamic balance of institutional change.The change of institutional environment caused by institutional change reacts on social consensus through the process of “individual cognition-group consensus-social consensus”.In addition,the revision process of the Land Management Law shows that the social consensus of China’s land increment revenue distribution system reform has gone through three evolutionary stages of “deficiency,manifestation and reinforcement”.In conclusion,the reform of the land increment revenue distribution system should gradually break through the predicament o’f the social consensus from the aspect before,during and after the event,gather the value consensus of the whole society and consolidate the ideological foundation of the system reform.It is suggested to promote the action consensus (on a pilot basis) and remove barriers to institutional reform,so as to gradually form a general institutional consensus and strengthen oversight and supervision over institutional reform to provide a favorable consensus basis for deepening the reform.