我国审慎银行管制策略的选择取向
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摘要
银行管制是指政府为纠正金融市场失灵和为防范金融风险而作出的一系列制度安排及其实施，从降低银行的种种风险出发，银行管制分为预防性管制和保护性管制，其中预防性管制可分为限制竞争性管制和健全性管制。银行管制的宏观目标是维护金融业的稳定，微观目标是保护存款人的利益。传统银行管制理论立足于市场失灵，现代银行管制理论注重风险的防范与管理。金融管制与金融创新是一个动态博弈的过程，它们之间的关系充满着辩证法。
国际银行业管制制度经历了一个自由银行——严格管制——放松管制——审慎管制的过程。发达国家和发展中国家的金融危机的教训启示我们：实施金融自由化不能忽视审慎管制。审慎管制是国际银行业的最新趋势，它以防范风险为核心，引入银行自我管理和市场约束作为有效补充。
我国银行管制只有20年的历史，虽然取得了重大进展，但仍存在着如下缺陷：过分强调安全，效率意识不足；合规性管制有余，风险审慎管制不足；宏观审慎不足；管制人员的素质不高。一系列因素使我国银行管制面临着巨大挑战，包括转型时期的矛盾与冲突；国际银行业的最新发展；开放经济条件下的复杂环境；金融危机的威胁；管制规则与国际接轨的迫切要求。
我国实施审慎银行管制，总体思路是以强化风险管制为核心，适度转移管制重心。将审慎思想寓于银行管制的各个环节中。放松限制后，相应的审慎管制要加强。要完善我国的健全性管制：包括资本充足率管制，全面风险管理，建立健全内部控制制度。要建立我国的保护性管制，建立市场化的信息披露、存款保险、央行最后贷款人职能和市场退出制度。此外，还应注意加强相关配套措施的支持，如进一步完善相关法律体系，依法行政；建立高效的金融管制当局之间的协调机制；建立事前防范的危机预警指标系统；建立健全银行管制的信息系统；建立对管制者进行监督机制等等。
Banking regulation refers to the framework of laws .rules and corresponding implement that correct the market failure in banks' operations and prevent financial risk. In perspective of risk control, banking regulation falls into two categories: preventive and protective ones. The former can be further broken into competition controlling and healthy regulations. At the macroeconomic level of banking regulation, its main purpose is to maintain the stability of the financial industry as a whole; and at the microeconomic level, it is set for depositor protection. Traditional banking regulation theory was based on market failure ,while modern theory is concentrating on risk prevention and management. The dialectical interaction of financial control and innovation is an ongoing process.
The international banking regulation has experienced a transformation from free competition, strictly regulation, loose control to discretional management. The past financial crisis in developed and developing economies reminds us that the existence of discretional management should be found in the financial deregulation direction. Being the latest trend in the international banking sector, discretional management puts emphasis on risk prevention and can work more effectively in complement with self-management and engagement of banks.
In the short history of twenty years, the banking regulation of China has attained great achievements but left much defects - over-emphasis on safety but with unbearable low returns, over-control on conformation but with less sufficient prudential risk management, less sufficient macro considerations and poor personnel's quality. The banking regulation of China is hence facing great challenges - conflict of interests in reform, new trends in international banking, complex environment in open economic condition, threats of financial crisis and the inevitable integration with international conducts and practice.
China prefers discretional banking regulation, which will strengthen risk management and allow appropriate shift of regulation focus. The discretional management will be reflected in every step of banking regulation. In the process of deregulation, appropriate care should be taken. Supervisory measures should be taken, including supervision of sufficiency of capital, full-scale risk management and enhancement of inner control. Protective policies should also be formulated to regulate disclosure of information and deposit insurance, strengthen the role of central bank as the bank of commercial banks and urge its withdrawal from market. Furthermore, associated supportive facilities should be provided, including but not restricted to the improvement of legal system, coordination of financial authorities and the creation of warning system, information system and supervising system on regulators.
国际银行业管制制度经历了一个自由银行——严格管制——放松管制——审慎管制的过程。发达国家和发展中国家的金融危机的教训启示我们：实施金融自由化不能忽视审慎管制。审慎管制是国际银行业的最新趋势，它以防范风险为核心，引入银行自我管理和市场约束作为有效补充。
我国银行管制只有20年的历史，虽然取得了重大进展，但仍存在着如下缺陷：过分强调安全，效率意识不足；合规性管制有余，风险审慎管制不足；宏观审慎不足；管制人员的素质不高。一系列因素使我国银行管制面临着巨大挑战，包括转型时期的矛盾与冲突；国际银行业的最新发展；开放经济条件下的复杂环境；金融危机的威胁；管制规则与国际接轨的迫切要求。
我国实施审慎银行管制，总体思路是以强化风险管制为核心，适度转移管制重心。将审慎思想寓于银行管制的各个环节中。放松限制后，相应的审慎管制要加强。要完善我国的健全性管制：包括资本充足率管制，全面风险管理，建立健全内部控制制度。要建立我国的保护性管制，建立市场化的信息披露、存款保险、央行最后贷款人职能和市场退出制度。此外，还应注意加强相关配套措施的支持，如进一步完善相关法律体系，依法行政；建立高效的金融管制当局之间的协调机制；建立事前防范的危机预警指标系统；建立健全银行管制的信息系统；建立对管制者进行监督机制等等。
Banking regulation refers to the framework of laws .rules and corresponding implement that correct the market failure in banks' operations and prevent financial risk. In perspective of risk control, banking regulation falls into two categories: preventive and protective ones. The former can be further broken into competition controlling and healthy regulations. At the macroeconomic level of banking regulation, its main purpose is to maintain the stability of the financial industry as a whole; and at the microeconomic level, it is set for depositor protection. Traditional banking regulation theory was based on market failure ,while modern theory is concentrating on risk prevention and management. The dialectical interaction of financial control and innovation is an ongoing process.
The international banking regulation has experienced a transformation from free competition, strictly regulation, loose control to discretional management. The past financial crisis in developed and developing economies reminds us that the existence of discretional management should be found in the financial deregulation direction. Being the latest trend in the international banking sector, discretional management puts emphasis on risk prevention and can work more effectively in complement with self-management and engagement of banks.
In the short history of twenty years, the banking regulation of China has attained great achievements but left much defects - over-emphasis on safety but with unbearable low returns, over-control on conformation but with less sufficient prudential risk management, less sufficient macro considerations and poor personnel's quality. The banking regulation of China is hence facing great challenges - conflict of interests in reform, new trends in international banking, complex environment in open economic condition, threats of financial crisis and the inevitable integration with international conducts and practice.
China prefers discretional banking regulation, which will strengthen risk management and allow appropriate shift of regulation focus. The discretional management will be reflected in every step of banking regulation. In the process of deregulation, appropriate care should be taken. Supervisory measures should be taken, including supervision of sufficiency of capital, full-scale risk management and enhancement of inner control. Protective policies should also be formulated to regulate disclosure of information and deposit insurance, strengthen the role of central bank as the bank of commercial banks and urge its withdrawal from market. Furthermore, associated supportive facilities should be provided, including but not restricted to the improvement of legal system, coordination of financial authorities and the creation of warning system, information system and supervising system on regulators.
引文
[1]巴塞尔银行监管委员会．有效银行监管核心原则．北京：中国金融出版社，2000，1
[2]臧景范．金融安全论．北京：中国金融出版社，2002，1
[3]何自云．商业银行的核心功能是风险管理能力．金融时报，2002-11-1
[4]白钦先．发达国家的金融监管比较．北京：中国金融出版社，2003，3-18
[5]王自力．转轨期金融问题与政策主张．北京：中国金融出版社，2003，229-298
[6]刘崇明．金融监管热点问题研究．北京：中国金融出版社，2002
[7]刘丽京．审慎银行监管在我国应用的主要方面．北京：中国金融半月刊，2003，(9)：38-39
[8]王兆星．严格审慎监管，有效防范金融风险．北京：金融研究，2000，(11)：20-26
[9]谢伏瞻．金融监管与金融改革．北京：中国发展出版社，2002，3-14
[10]阎庆民．中国银行业监管问题研究．北京：中国金融出版社，2003，55-61
[11]贾改梅．论金融自由化中的审慎监管．济南：济南金融，2003，(8)：13-15
[12]刘明志．银行管制的收益与成本．北京：中国金融出版社，2002，1-2，40-44
[13][美]密勒德·让，蒂米奇·威斯塔．金融规管，变化中的游戏规则．上海：上海财经大学出版社，2000
[14]周虎．金融管制的过程．北京：银行家，2003(3)：36-37
[15]曾国安．管制、政府管制与经济管制．北京：经济评论，2004，(1)：93-103
[16]谢地．政府规制经济学．北京：高等教育出版社，2003，1-28
[17]Charles Goodhart,Financial Regulation:Why,How,and Where now?, Rooutledge, 1998
[18]陈建华．金融监管有效性研究．北京：中国金融出版社，2002，240-242
[19]李德．经济全球化中的金融监管研究．北京：中国金融出版社，2002，43-44，116-117
[20]胡怀邦．银行监管的目标定位：理论分析与中国选择．北京：金融时报，2003-11-24
[21]王胜明．《中华人民共和国中国人民银行法》释义．北京：法律出版社，2004
[22]胡康生，王胜明．《中华人民共和国银行监督管理法》释义．北京：法律出版社，2004
[23]陶涛．论日本的金融行政：日本型金融管制的成败．北京：北京大学出版社，2000，20-37
[24]Thomas F.ellmann, Kevin c.Murdock, and Joseph, Stiglitz, Liberalization, Moral
Hard in Banking, and Prudential Regulation: Are Capital Requirements Enough", The American Economy Review March 2000:147-165
[25] 张燕玲．完善内部控制制度，健全风险管理体系．现代商业银行导刊，2004，(2)：9-12
[26] Charles M Kahn and Joao A.C Sanpos. Allocating Banking Regulatory Powers: Lander of Last Resort, Deposit Insurance and Supervision. BIS Working Papers No. 102,2001
[27] 陈建华．金融监管有效性研究．北京：中国金融出版社，2002
[28] 全贤唐．经济博弈分析．北京：机械工业出版社，2003
[29] Gleeson, Simon. Principles of financial regulation, Butter worth Law, 2004
[30] [美]艾伦·加特著．陈雨露，王智洁等译．管制、放松与重新管制：银行业、保险业与证券业的未来．北京：经济科学出版社，1999
[31] Chami, Ralph. Emerging issues in banking regulation. International Monetary Fund, 2003
[32] Basle Committee on Banking Supervision.Consultative Document:the New BasleCapital Accord. Basle: Bank for International Settlements, April 2003
[33] 孙涛．国际金融监管的最新进展．北京：世界经济，2002，(4)：52
[34] 巴塞尔银行监管委员会．段继宁译，王君审校．核心原则评价方法．北京：中国金融出版社，2000
[35] 巴曙松．巴塞尔新资本协议研究．北京：中国金融出版社，2003
[36] 韩泽县，任有泉．我国银行监管有效性制约因素分析．北京金融，2004，(3)：28-31
[37] 章和杰．中国金融制度的风险机理及改革路径研究．北京：中国社会科学出版社，2004
[38] Niles Hermes,Robert Lensin. Financial system development in transition于economies. Journal of Banking&Finance, 2000, 24
[39] Charles W.Calomiris and Robert E.Litan, Financial Regualtion in a Global Marketplace.http://www.brookings.edu/dybdocroot/views/papers/litan/1999-11-0 3.pdf
[40] 朱孟楠．金融监管的国际协调与合作．北京：中国金融出版社，2003
[41] Hall, Maximilian. Handbook of banking regulation and supervision in the United Kingdom. Handbook of banking regulation and supervision in the United Kingdom, 1999
[42] 吴祖鸿．完善非现场监管体系的政策建议．郑州：金融理论与实践，2004，(3)：31-32
[43] Financial regulation in the Greater China area: mainland China, Taiwan and Hong
Kong SAR. The Hague: Kluwer Law International, 2001
[44] 林平．银行危机监管论．北京：中国金融出版社，2002
[45] 阙方平．有问题银行处置制度安排研究．北京：中国金融出版社，2001
[2]臧景范．金融安全论．北京：中国金融出版社，2002，1
[3]何自云．商业银行的核心功能是风险管理能力．金融时报，2002-11-1
[4]白钦先．发达国家的金融监管比较．北京：中国金融出版社，2003，3-18
[5]王自力．转轨期金融问题与政策主张．北京：中国金融出版社，2003，229-298
[6]刘崇明．金融监管热点问题研究．北京：中国金融出版社，2002
[7]刘丽京．审慎银行监管在我国应用的主要方面．北京：中国金融半月刊，2003，(9)：38-39
[8]王兆星．严格审慎监管，有效防范金融风险．北京：金融研究，2000，(11)：20-26
[9]谢伏瞻．金融监管与金融改革．北京：中国发展出版社，2002，3-14
[10]阎庆民．中国银行业监管问题研究．北京：中国金融出版社，2003，55-61
[11]贾改梅．论金融自由化中的审慎监管．济南：济南金融，2003，(8)：13-15
[12]刘明志．银行管制的收益与成本．北京：中国金融出版社，2002，1-2，40-44
[13][美]密勒德·让，蒂米奇·威斯塔．金融规管，变化中的游戏规则．上海：上海财经大学出版社，2000
[14]周虎．金融管制的过程．北京：银行家，2003(3)：36-37
[15]曾国安．管制、政府管制与经济管制．北京：经济评论，2004，(1)：93-103
[16]谢地．政府规制经济学．北京：高等教育出版社，2003，1-28
[17]Charles Goodhart,Financial Regulation:Why,How,and Where now?, Rooutledge, 1998
[18]陈建华．金融监管有效性研究．北京：中国金融出版社，2002，240-242
[19]李德．经济全球化中的金融监管研究．北京：中国金融出版社，2002，43-44，116-117
[20]胡怀邦．银行监管的目标定位：理论分析与中国选择．北京：金融时报，2003-11-24
[21]王胜明．《中华人民共和国中国人民银行法》释义．北京：法律出版社，2004
[22]胡康生，王胜明．《中华人民共和国银行监督管理法》释义．北京：法律出版社，2004
[23]陶涛．论日本的金融行政：日本型金融管制的成败．北京：北京大学出版社，2000，20-37
[24]Thomas F.ellmann, Kevin c.Murdock, and Joseph, Stiglitz, Liberalization, Moral
Hard in Banking, and Prudential Regulation: Are Capital Requirements Enough", The American Economy Review March 2000:147-165
[25] 张燕玲．完善内部控制制度，健全风险管理体系．现代商业银行导刊，2004，(2)：9-12
[26] Charles M Kahn and Joao A.C Sanpos. Allocating Banking Regulatory Powers: Lander of Last Resort, Deposit Insurance and Supervision. BIS Working Papers No. 102,2001
[27] 陈建华．金融监管有效性研究．北京：中国金融出版社，2002
[28] 全贤唐．经济博弈分析．北京：机械工业出版社，2003
[29] Gleeson, Simon. Principles of financial regulation, Butter worth Law, 2004
[30] [美]艾伦·加特著．陈雨露，王智洁等译．管制、放松与重新管制：银行业、保险业与证券业的未来．北京：经济科学出版社，1999
[31] Chami, Ralph. Emerging issues in banking regulation. International Monetary Fund, 2003
[32] Basle Committee on Banking Supervision.Consultative Document:the New BasleCapital Accord. Basle: Bank for International Settlements, April 2003
[33] 孙涛．国际金融监管的最新进展．北京：世界经济，2002，(4)：52
[34] 巴塞尔银行监管委员会．段继宁译，王君审校．核心原则评价方法．北京：中国金融出版社，2000
[35] 巴曙松．巴塞尔新资本协议研究．北京：中国金融出版社，2003
[36] 韩泽县，任有泉．我国银行监管有效性制约因素分析．北京金融，2004，(3)：28-31
[37] 章和杰．中国金融制度的风险机理及改革路径研究．北京：中国社会科学出版社，2004
[38] Niles Hermes,Robert Lensin. Financial system development in transition于economies. Journal of Banking&Finance, 2000, 24
[39] Charles W.Calomiris and Robert E.Litan, Financial Regualtion in a Global Marketplace.http://www.brookings.edu/dybdocroot/views/papers/litan/1999-11-0 3.pdf
[40] 朱孟楠．金融监管的国际协调与合作．北京：中国金融出版社，2003
[41] Hall, Maximilian. Handbook of banking regulation and supervision in the United Kingdom. Handbook of banking regulation and supervision in the United Kingdom, 1999
[42] 吴祖鸿．完善非现场监管体系的政策建议．郑州：金融理论与实践，2004，(3)：31-32
[43] Financial regulation in the Greater China area: mainland China, Taiwan and Hong
Kong SAR. The Hague: Kluwer Law International, 2001
[44] 林平．银行危机监管论．北京：中国金融出版社，2002
[45] 阙方平．有问题银行处置制度安排研究．北京：中国金融出版社，2001
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