总结经验 与时俱进 开创银行业监管工作的新局面

总结经验 与时俱进 开创银行业监管工作的新局面

中国银行业监督管理委员会主席 刘明康

(English version available)

中国银行业监督管理委员会（简称中国银监会），是根据党的十六大精神，经第十届全国 人民代表大会第一次会议批准设立的国务院直属事业机构。中国银监会成立后，一定按照党中央、国务院的要求，总结经验，与时俱进，扎实工作，加强和改进银行业监管，努力开创银行业监管工作的新局面。

一、成立中国银监会的重大意义

根据第十届全国人民代表大会第一次会议通过的《关于国务院机构改革方案的决定》，国务院决定设立中国银监会。建立中国银监会，是党中央、国务院从我国金融实际出发，在反复论证、听取多方意见基础上作出的决策，是我国经济体制改革的重要内容，是完善社会主义市场经济体制的客观要求，也是深化金融改革、加强金融监管、完善金融市场体系、促进我国金融业更好地应对加入世界贸易组织挑战的一个重大举措。金融是现代经济的核心，建立独立、统一的银行业监管机构，对进一步深化金融改革，加强金融监管，保障金融安全、高效、稳定运行，防范和化解金融风险具有十分重要的意义。中国银监会的建立，标志着我国金融业对外开放步伐进一步加快，标志着我国金融监管业的体制、机制向着市场化和国际化方向又迈出了新的一步。

二、中国银监会的主要职责及其部门设置

中国银监会根据国务院授权，统一监督管理银行、金融资产管理公司、信托投资公司及其他存款类金融机构，维护银行业的合法、稳健运行。中国银监会已正式履行职责。中国银监会的主要职责是：制定有关银行业金融机构监管的规章制度和办法；审批银行业金融机构及分支机构的设立、变更、终止及其业务范围；对银行业金融机构实行现场和非现场监管，依法对违法违规行为进行查处；审查银行业金融机构高级管理人员任职资格；负责统一编制全国银行数据、报表，并按照国家有关规定予以公布；会同有关部门提出存款类金融机构紧急风险处置的意见和建议；负责银行业、国有重点金融机构监事会的日常管理工作；承办国务院交办的其他事项。

中国银监会设１５个部门：办公厅、政策法规部（研究局）、银行监管一部、银行监管二部、银行监管三部、非银行金融机构监管部、合作金融机构监管部、统计部、财务会计部、国际部、监察部、人事部、宣传工作部、群众工作部和监事会工作部；另设3个事业单位：信息中心、培训中心和机关服务中心。中国银监会将在省（自治区、直辖市）设立银监局，地（州、市）设立分局，根据监管工作需要，在县（县级市）设立精干的办事机构。

三、目前，中国银监会的组建情况

中国银监会的组建工作正在按照党中央、国务院的要求稳健有序地进行。中国银监会的组建工作主要涉及中国人民银行有关职能的划转和原中央金融工委有关职能的整合。组建的基本原则有3条：一是人随业务走，有关监管机构和人员原则上整体划转；二是先定方案后定人，一级负责一级，自上而下，上下联动，统一部署，抓紧进行；三是边组建，边工作，保证组建期间监管工作的正常进行。我们目前与中国人民银行等部门在各方面配合得很好。

由于客观条件的限制，目前中国银监会在两地办公。我们将采取有效措施并充分利用信息化手段，努力克服两地办公带来的困难，保障各项工作正常运转，并不断提高工作效率。

 

四、监管工作的经验、目的和良好监管的标准

我国银行业的监管工作已经有了一个很好的基础并积累了许多宝贵经验。概括起来，监管工作的重要经验是：必须坚持法人监管，重视对每个金融机构总体风险的把握、防范和化解；必须坚持以风险为主的监管内容，努力提高金融监管的水平，改进监管的方法和手段；必须注意促进金融机构风险内控机制形成和内控效果的不断改善；必须按照国际准则和要求，逐步提高监管的透明度。

监管工作的目的是：通过审慎有效的监管，保护广大存款人和消费者的利益；通过审慎有效的监管，增进市场信心；通过宣传教育工作和相关信息披露，增进公众对现代金融的了解；努力减少金融犯罪。

良好监管的标准有六条：良好监管要促进金融稳定和金融创新共同发展；要努力提升我国金融业在国际金融服务中的竞争力；对各类监管设限要科学、合理，有所为，有所不为，减少一切不必要的限制；鼓励公平竞争、反对无序竞争；对监管者和被监管者都要实施严格、明确的问责制；要高效、节约地使用一切监管资源。做到：权为民所用，情为民所系，利为民所谋。党的为人民服务的宗旨是我们的一切工作的出发点和归宿。

 

五、今后一段时间内，银行业监管的工作重点

当前，金融行业监管体系正在进一步完善，银行监管工作已经有了良好的基础。今后一段时期内，整个银行业监管工作的重点是：根据国务院的统一部署，在做好各类机构监管工作的基础上，促进银行继续降低不良贷款比例，防范和化解金融风险，大力推进国有独资商业银行的改革步伐，加快农村信用社的改革试点工作。

（一）促进银行继续降低不良贷款比例，防范和化解金融风险。近两年虽然银行不良贷款比例有所下降，但目前仍处在高位。继续降低不良贷款比例，仍然是当前的一项突出任务，需要采取措施，加大贷款回收力度。对已经形成的不良贷款，要通过法律、经济、行政手段积极催收，采取多种形式处置，最大限度回收，减少损失。要通过加强内控，完善授权授信、审贷分离制度，健全贷款评审决策机制，严格控制发生新的不良贷款。优化贷款结构，提高贷款质量。

（二）深化国有独资商业银行改革。要完善银行内控机制，加强管理，改进经营，提高服务质量和水平。在此基础上，实行彻底规范的重组和改造，建立良好的法人治理结构和运行机制。其他商业银行也要按照现代企业制度的要求，深化内部改革，转换经营机制。

（三）加快农村金融体制改革。充分发挥金融对农业和农村经济的支持作用。深化农村信用社改革要明晰产权关系，强化约束机制，增强服务功能。农村信用社要坚持为农业、农村和农民服务的宗旨，加大农业信贷投放，增加农户贷款，及时、有效地为农民生产生活和农业、农村经济结构调整提供服务。同时，要整顿农村信用秩序，引导和规范民间借贷。

 

 

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.