我国政府优先购买权的功能审视与制度重构

Function Analysis and System Reconstruction of Municipality's Pre-Emption Rights in China

我国政府优先购买权制度实效缺失的主要原因在于其功能定位有偏差。其核心功能本应是"辅助规划实施、实现公共利益、重置土地发展权以及公平分配土地增值收益",但现行立法以"明显低于市场价格"作为其要件,极大地限制了其作用空间。为充分发挥政府优先购买权特有的制度功能,应当在制度上转型和重构:建立特定规划发展区域的政府优先购买权;将政府优先购买权的客体由土地扩展至不动产;放宽政府优先购买不动产的价格限定;优化政府优先购买权的实施机制;强化对政府优先购买权的自由裁量约束和外部监督。在此基础上,实现政府优先购买权与不动产征收、土地收回、土地收购等制度的功能互补,进一步健全我国土地利用管制制度体系。

The failure of Municipality＇ s Pre-emption Rights （MPR） in China can be attributed to its functional deviation. The key functions of MPR should be safeguarding urban planning relocating land development rights and fairly distributing land increment profits. , achieving However, 1 public interests, ow price transfer has been made as the essential elements of MPR, which restricts its functions. To play the advantages of MPR, it is necessary to reconstruct it in system and the key of that is as follows ： firstly, establishing MPR in designated development areas covered by plan ; secondly, expanding MPR from land to real estate; thirdly, removing low price transfer of MPR and improving its implementation mechanism ; lastly, strengthening the control of discretion and intensifying external supervision. Then on the basis of these, MPR can be a complementation for expropriation, land resumption and land purchase, which is helpful to improve the land use regulation system in China