總結經驗 與時俱進 開創銀行業監管工作的新局面

中國銀行業監督管理委員會主席 劉明康

(English version available)

中國銀行業監督管理委員會（簡稱中國銀監會），是根據黨的十六大精神，經第十屆全國

美妙時光產權酒店 紫光臺式電腦 小戶型主陣容揭曉 多媒體互動學英語

人民代表大會第一次會議批準設立的國務院直屬事業機構。中國銀監會成立后，一定按照黨中央、國務院的要求，總結經驗，與時俱進，扎實工作，加強和改進銀行業監管，努力開創銀行業監管工作的新局面。

一、成立中國銀監會的重大意義

根據第十屆全國人民代表大會第一次會議通過的《關于國務院機構改革方案的決定》，國務院決定設立中國銀監會。建立中國銀監會，是黨中央、國務院從我國金融實際出發，在反復論證、聽取多方意見基礎上作出的決策，是我國經濟體制改革的重要內容，是完善社會主義市場經濟體制的客觀要求，也是深化金融改革、加強金融監管、完善金融市場體系、促進我國金融業更好地應對加入世界貿易組織挑戰的一個重大舉措。金融是現代經濟的核心，建立獨立、統一的銀行業監管機構，對進一步深化金融改革，加強金融監管，保障金融安全、高效、穩定運行，防范和化解金融風險具有十分重要的意義。中國銀監會的建立，標志著我國金融業對外開放步伐進一步加快，標志著我國金融監管業的體制、機制向著市場化和國際化方向又邁出了新的一步。

二、中國銀監會的主要職責及其部門設置

中國銀監會根據國務院授權，統一監督管理銀行、金融資產管理公司、信托投資公司及其他存款類金融機構，維護銀行業的合法、穩健運行。中國銀監會已正式履行職責。中國銀監會的主要職責是：制定有關銀行業金融機構監管的規章制度和辦法；審批銀行業金融機構及分支機構的設立、變更、終止及其業務范圍；對銀行業金融機構實行現場和非現場監管，依法對違法違規行為進行查處；審查銀行業金融機構高級管理人員任職資格；負責統一編制全國銀行數據、報表，并按照國家有關規定予以公布；會同有關部門提出存款類金融機構緊急風險處置的意見和建議；負責銀行業、國有重點金融機構監事會的日常管理工作；承辦國務院交辦的其他事項。

中國銀監會設１５個部門：辦公廳、政策法規部（研究局）、銀行監管一部、銀行監管二部、銀行監管三部、非銀行金融機構監管部、合作金融機構監管部、統計部、財務會計部、國際部、監察部、人事部、宣傳工作部、群眾工作部和監事會工作部；另設3個事業單位：信息中心、培訓中心和機關服務中心。中國銀監會將在省（自治區、直轄市）設立銀監局，地（州、市）設立分局，根據監管工作需要，在縣（縣級市）設立精干的辦事機構。

三、目前，中國銀監會的組建情況

中國銀監會的組建工作正在按照黨中央、國務院的要求穩健有序地進行。中國銀監會的組建工作主要涉及中國人民銀行有關職能的劃轉和原中央金融工委有關職能的整合。組建的基本原則有3條：一是人隨業務走，有關監管機構和人員原則上整體劃轉；二是先定方案后定人，一級負責一級，自上而下，上下聯動，統一部署，抓緊進行；三是邊組建，邊工作，保證組建期間監管工作的正常進行。我們目前與中國人民銀行等部門在各方面配合得很好。

由于客觀條件的限制，目前中國銀監會在兩地辦公。我們將采取有效措施并充分利用信息化手段，努力克服兩地辦公帶來的困難，保障各項工作正常運轉，并不斷提高工作效率。

四、監管工作的經驗、目的和良好監管的標準

我國銀行業的監管工作已經有了一個很好的基礎并積累了許多寶貴經驗。概括起來，監管工作的重要經驗是：必須堅持法人監管，重視對每個金融機構總體風險的把握、防范和化解；必須堅持以風險為主的監管內容，努力提高金融監管的水平，改進監管的方法和手段；必須注意促進金融機構風險內控機制形成和內控效果的不斷改善；必須按照國際準則和要求，逐步提高監管的透明度。

監管工作的目的是：通過審慎有效的監管，保護廣大存款人和消費者的利益；通過審慎有效的監管，增進市場信心；通過宣傳教育工作和相關信息披露，增進公眾對現代金融的了解；努力減少金融犯罪。

良好監管的標準有六條：良好監管要促進金融穩定和金融創新共同發展；要努力提升我國金融業在國際金融服務中的競爭力；對各類監管設限要科學、合理，有所為，有所不為，減少一切不必要的限制；鼓勵公平競爭、反對無序競爭；對監管者和被監管者都要實施嚴格、明確的問責制；要高效、節約地使用一切監管資源。做到：權為民所用，情為民所系，利為民所謀。黨的為人民服務的宗旨是我們的一切工作的出發點和歸宿。

五、今后一段時間內，銀行業監管的工作重點

當前，金融行業監管體系正在進一步完善，銀行監管工作已經有了良好的基礎。今后一段時期內，整個銀行業監管工作的重點是：根據國務院的統一部署，在做好各類機構監管工作的基礎上，促進銀行繼續降低不良貸款比例，防范和化解金融風險，大力推進國有獨資商業銀行的改革步伐，加快農村信用社的改革試點工作。

（一）促進銀行繼續降低不良貸款比例，防范和化解金融風險。近兩年雖然銀行不良貸款比例有所下降，但目前仍處在高位。繼續降低不良貸款比例，仍然是當前的一項突出任務，需要采取措施，加大貸款回收力度。對已經形成的不良貸款，要通過法律、經濟、行政手段積極催收，采取多種形式處置，最大限度回收，減少損失。要通過加強內控，完善授權授信、審貸分離制度，健全貸款評審決策機制，嚴格控制發生新的不良貸款。優化貸款結構，提高貸款質量。

（二）深化國有獨資商業銀行改革。要完善銀行內控機制，加強管理，改進經營，提高服務質量和水平。在此基礎上，實行徹底規范的重組和改造，建立良好的法人治理結構和運行機制。其他商業銀行也要按照現代企業制度的要求，深化內部改革，轉換經營機制。

（三）加快農村金融體制改革。充分發揮金融對農業和農村經濟的支持作用。深化農村信用社改革要明晰產權關系，強化約束機制，增強服務功能。農村信用社要堅持為農業、農村和農民服務的宗旨，加大農業信貸投放，增加農戶貸款，及時、有效地為農民生產生活和農業、農村經濟結構調整提供服務。同時，要整頓農村信用秩序，引導和規范民間借貸。

Turning a New Page in Banking Regulation and Supervision in China:

On the basis of past experiences and in keeping pace with changing times

by Mr. Liu Mingkang

Chairman, China Banking Regulatory Commission

       In the spirit of the Sixteenth Plenary Session of the Chinese Communist Party and as approved by the First Session of the Tenth National People’s Congress, the China Banking Regulatory Commission (CBRC) has been established as a government agency under the State Council. The CBRC will make every effort, as required by the Chinese Communist Party Central Committee (CCPCC) and State Council, to improve banking regulation and supervision based on past experiences and in keeping with changing times, thereby turning a new page in banking supervision in China.

I.  Significant implications of the creation of the CBRC

Pursuant to the Decision on Institutional Restructuring of the Government Agencies under the State Council adopted by the First Session of the Tenth National People’s Congress, the State Council decided to set up the CBRC. The CCPCC and State Council made this decision based on assessment of the current circumstances of China’s financial sector and extensive deliberation and consultation with various parties. The creation of the CBRC is an important step in China’s economic reform and consistent with the requirements for developing a socialist market economy in China. It is also a significant initiative to deepen financial reform, strengthen financial supervision and improve the financial system, hence better positioning China’s financial industry in response to the challenges posed by the WTO entry. The financial sector plays a critical role in a modern economy. The establishment of an independent banking supervisory authority has significant implications for further deepening financial reform, improving financial supervision and mitigating financial risks, so as to maintain a safe, sound and efficient financial system in China. The establishment of the CBRC demonstrates that China’s financial sector has been opened up further to the outside world, while the financial supervisory regime has been brought closer to the international best practices.

II.       The CBRC’s major responsibilities and organizational structure

The CBRC has officially started its operation. As authorized by the State Council, the CBRC is responsible for the regulation and supervision of banks, asset management companies, trust and investment companies as well as other deposit-taking financial institutions. Its major responsibilities are as follows:

-           formulate supervisory rules and regulations for banking institutions;

-           authorize the establishment, changes, termination, branching and business scope of banking institutions;

-           conduct fit and proper tests for directors and senior managers;

-           conduct off-site surveillance and on-site examinations of banking institutions;

-           investigate, penalize and take enforcement actions on activities that violate relevant laws and regulations;

-           compile and publish statistics and reports of the overall banking sector in accordance with relevant regulations;

-           make proposals on the resolution of problem deposit-taking institutions in consultation with relevant authorities;

-           be responsible for the administration of the supervisory boards of the state-owned financial institutions; and

-           perform other responsibilities delegated by the State Council.

The CBRC comprises fifteen departments, namely the General Office, Supervisory Rule and Regulations Department (Research Bureau), Banking Supervision Department I, Banking Supervision Department II, Banking Supervision Department III, Non-Bank Financial Institutions Supervision Department, Cooperative Finance Supervision Department, Statistics Department, Treasury and Accounting Department, International Department, Staff Compliance Department, Human Resources Department, Publicity Department, Staff Union Department and Supervisory Boards Office. In addition, it has three functional centers, namely the Information Center, Training Center and Internal Service Center. The CBRC will set up local offices at provincial level, city level, and if necessary, county level.

III.     The CBRC at present

As required by the CCPCC and State Council, the creation of the CBRC has proceeded smoothly, which mainly involves the transfer of relevant responsibilities from the People’s Bank of China (PBC) to the CBRC and the restructuring of the Central Finance Working Committee. Three principles have been followed in this process. First, the staff members mostly move along with the relevant functional units. As a result, some departments will be transferred as a whole. Second, the organizational structure is designed prior to staffing, while the internal units are organized from top to bottom according to a unified plan. Third, normal supervisory work has proceeded smoothly in tandem with the formation of the CBRC. In this regard, we have been cooperating and coordinating closely with the PBC and other relevant government agencies. 

During the transitional period, the CBRC has to operate at two different locations. However, we will take effective measures while making the best use of information technology, so as to overcome any possible inconvenience and ensure the integrated and efficient operation of the CBRC.

IV.    Regulatory experiences and objectives as well as principles of good regulation

The four general experiences gained are as follows:

-           conducting consolidated supervision inpuorgto assess, monitor and mitigate the overall risks of each banking institution as a legal entity;

-           staying focused on a risk-based supervisory approach while improving supervisory process and methods, so as to ensure the efficiency of banking supervision;

-           urging banking institutions to put in place and maintain a sound and effective system of internal controls; and

-           enhancing transparency in line with the international best practices.

The CBRC’s four regulatory objectives are as follows:

-           protection of the interests of depositors and consumers through prudential and effective supervision;

-           maintaining market confidence in the Chinese financial system through prudential and effective supervision;

-           promoting public awareness and understanding of the banking system and it’s reform through customer education and information disclosure; and

-           reducing financial crime.

To be an accountable regulator, we shall follow ‘six principles of good regulation’, which are:

-           to maintain financial stability while facilitating innovation;

-           to enhance the international competitiveness of China’s financial sector;

-           to ensure the regulatory restrictions are appropriate and reasonable while removing all the unnecessary controls;

-           to encourage and maintain fair competition while curbing disorderly competition;

-           to introduce an open, transparent and accountable mechanisms for both the institutions we supervise and ourselves; and

-           to use our resources in an efficient and economic way.

The CBRC will do its utmost to prevent the abuse of power while putting public interests before anything else in fulfilling its mandate.

V.       The CBRC’s supervisory priorities in the near future

In recent years, China has further improved its financial supervisory system, which has laid a sound foundation for enhancing the banking supervision. The priorities of banking supervision in the near future are, through chartering, regulating and supervision, to ensure our institutions to manage their risks better, to reduce the ratio of non-performing loans (NPLs), to ensure the state-owned commercial banks (SOCBs) to quicken their pace in reforms and to accelerate the reform of the rural credit cooperatives (RCCs).

(i)   Continue to urge commercial banks to reduce their NPL ratios to mitigate financial risks. Although the NPL ratios of the commercial banks have decreased in the past two years, they still stand at a high level. Reducing the risk level continues to be one of the priorities of banking supervision in China. Various legal, economic and administrative measures need to be taken to deal with the NPLs, hence maximizing NPL recovery and minimizing losses. Meanwhile, with adequate internal controls being established, the credit culture and policies, including risk management and measurement approaches of the commercial banks, should be improved inpuorgto prevent the new NPLs and ensure a safe and sound portfolio that supports better performance.

(ii) Deepen the SOCBs reform. Efforts should be made to improve the governance of the SOCBs inpuorgto compete effectively with other providers, offer products and services that meet the market needs, comply with applicable laws and provide fair access to financial services and fair treatment of their customers. Only by doing so, they can attract potential investors in the future and likely face the market to increase their capital. For other commercial banks, the overall corporate governance should also be advanced with restructuring being enhanced according to the requirements of establishing a modern enterprise.

(iii)   Accelerate the reform of the rural financial system. The role of rural finance in facilitating the development of the agricultural sector and rural areas should be broughtotnifull play. The reform of the RCCs should be pushed ahead by clarifying ownership structure, improving internal controls and enhancing service quality. The RCCs should stay focused on agricultural needs, thereby providing timely support to farmers and facilitating structural adjustment in the agricultural sector and rural areas. In addition, measures should be taken to provide direction and guidance to the lending activities in the rural sector, so that risks involved can be duly controlled and managed.