作者：刘连泰
作者介绍：厦门大学法学院教授
出版日期：2026年4月9日
内容提要 土地征收是法律规定的多阶段行政行为，预征收是其中的一个重要阶段。我国《土地管理法》明确规定了预征收程序。在预征收程序中，被征地的集体经济组织中的多数成员可以判断征地补偿安置方案的合法性，但不能决定征地补偿安置方案的具体内容。被征地的集体经济组织中的少数成员拒绝签订补偿安置协议对征收程序的启动具有超级约束力。协商是土地预征收的法定程序，县级以上地方人民政府应当与财产权人进行实质协商，所签订的协议在性质上属于行政协议。征地申请经过有权机关批准后，征地补偿安置方案才能生效，这体现了征地审批的合法性控制功能。法律通过将依法征收和民主协商相结合，在征收这一典型的高权行为中吸纳了财产权人的判断和选择，使得征收成为征收机关与财产权人的“合意”，同时又通过征地审批程序将“合意”控制在法律的框架内，从而既促进了公共利益的实现，又保障了财产权人的合法权益，还减少了征地的制度成本，体现了我国土地预征收的独特制度机理。
关键词 土地预征收 依法征收 民主协商 多数决 保护少数
Abstract: Land expropriation is a multi-stage administrative act prescribed by law, and pre-expropriation constitutes an important stage thereof. The Land Administration Law of China stipulates a pre-expropriation procedure, whereby a majority of the members of the expropriated collective economic organization may judge the legality of the land expropriation compensation and resettlement plan but shall not determine its specific content. The refusal of minority members of the expropriated collective economic organization to sign the compensation and resettlement agreements exerts a super-constraining effect on the initiation of the expropriation process. Negotiation is a statutory procedure of land pre-expropriation, and local people’s governments at or above the county level must engage in substantive consultations with property right holders. The resulting agreements constitute administrative agreements. The expropriation compensation and resettlement agreements shall take effect only after the application of land expropriation is approved by the competent authority, which reflects the legality control function of the land expropriation approval process. By integrating statutory expropriation with democratic consultation, the law incorporates the judgment and choices of property right holders into this typical high-power act of expropriation, thereby transforming expropriation into mutual assent between the expropriating authority and property right holders, while confining such ‘mutual assent’ within the legal framework through the approval process. This approach facilitates the realization of public interests, safeguards the legitimate rights and interests of property right holders, reduces the institutional costs of expropriation, and embodies the unique institutional mechanism of China’s land pre-expropriation.