我国银行监管体系研究

【作者】 胡旭；

【导师】 张静琦；

【作者基本信息】 西南财经大学 ， 金融学， 2003， 硕士

【摘要】 银行业在一国金融体系中占有重要地位，其健康运行是金融良性发展的关键，而银行监管对于保障银行系统的健康运行具有至关重要的作用。这一点在1997年的亚洲金融危机中体现得尤为明显。新加坡之所以在亚洲金融危机中受到的影响和冲击最小，主要原因就在于“新加坡健全、严格而又适时调整的银行监管制度以及在这种制度下形成的高度发达、稳健有序、管理严格和充满竞争活力的银行业”（新加坡财长语）。这充分证明了银行监管对于银行业健康运行的重要意义。反观我国，在过去的几年里，银行业界发生多起重大案件，这显示出我国银行体系存在着巨大的风险，也证明我国的银行监管体系还存在诸多的不完善之处。如何完善我国的银行监管体系，这正是本文写作的目的所在。本文写作的基本思路是：以最近几年我国银行业界发生的几起重大案件作为引子，导出本文所要讨论的话题——银行监管；然后通过对我国银行监管发展历程的回顾，分析其取得的成就与存在的不足；继而对国际上银行监管的成功经验进行分析总结，以期为我国银行监管改革作指导；最后运用第三部分所得出的一些经验结论对我国银行监管中存在的具体问题进行分析，并试图寻求解决的办法。文章共分为四个部分：前言部分，对我国银行业发生的几起重大案件进行了描述和分析，由此引导出本文的主题——银行监管。第一章回顾我国银行监管的发展历程，指出其取得的成就及存在的不足。我国银行监管的发展历程可以分为三个阶段。从本世纪初清政府户部银行的建立，到1948年中国人民银行的成立，是我国银行监管的早期发展阶段。改革开放前，计划经济条件下的特殊银行监管时期是我国银行监管发展的第二个阶段。改革开放之后，各种商业银行机构相继设立、运行，人民银行从具体的商业银行业务中解脱出来，独立行使中央银行的职能。随着金融业的发展，证券、保险的监管职能从人民银行中分拆出来，由此形成三大金融监管机构分别行使银行、证券和保险监管职能的局面，这是我国银行监管发展的第三个阶段。从总体上看，我国银行监管与经济发展的要求还是基本相适应的，也取得了可喜的成就，主要体现在监管的组织结构、监管所依赖的法律体系、监管的方式方法以及国际交流合作等方面。但也应该清楚地看到，我国银行监管的不足之处是客观存在的：人民银行的一身二任导致监管的目标不清晰；由于历史遗留等多方面的原因，银行监管所依赖的法律体系方面还不完善；监管的方式单一，没有发挥社会以及银行自身的监管积极性；监管的手段跟不上时代发展的需要。因此，改革、完善我国银行监管体系很有必要。第二章通过对当今世界银行监管模式的对比分析，总结经验教训，为第三章我国银行监管改革作铺垫。当今世界银行监管，代表性的有四类模式：美国模式、英国模式、新加坡模式和德国模式。美国实行多元化双轨制银行监管，其伞型的多元化监管机构对应二元结构式的银行体系，监管机构之间分权而治；监管的目标、手段也是与时俱进，随着经济环境的变化而不断调整；商业银行本身也建立有严格的内控制度作为防范风险的第一道防线；监管者与被监管者都是依照完备的法律体系行事，把随意的人为干预降到最低程度。英国是老牌的资本主义国家，其银行具有悠久的历史，早期的银行监管主要依赖自愿方式及自律机构，以“劝说”和“要求”为主，但1997年“大爆炸”式改革后成立的金融服务管理局加强了对银行的风险监管，表明英国银行监管正由“自律”向“自律和法律并重”转型。新加坡是新兴的发展中国家，其银行监管素以严厉而著称，但同时又强调银行自身的内控制度建设和社会监管的作用；另一方面由于新加坡受地域限制，银行国内发展空间有限，所以监管当局<WP=3>鼓励银行业的国际化发展，这是新加坡银行监管的一大特色。德国实行全能银行制度，从这些年的运行结果看，效果良好，其成功的经验就在于两点，首先是有效的银行内控制度，再就是货币政策与银行监管的分离。从这几个典型国家银行监管的成功经验可以看出：没有一种固定的模式适用于所有的国家和所有的环境条件，银行监管中的问题要根据不同的情况具体分析，才能找到合适的解决方案。但依法监管、减少人为干预，重视银行自身内控制度建设和社会力量的监管作用，适应不断变化的情况、适时调整自己的行为方式仍然是各国银行监管的共同点。第三章就我国银行监管中存在的问题进行深入探讨并试图寻找解决的办法。首先就我国银行监管的目标问题进行分析，监管目标的确定取决于一个国家经济现状、经济发展目标、国际经济环境等因素，而我国银行监管目标确定中的问题就在于忽略了应该促进银行的国际竞争力以应对经济的国际化发展。其次是关于监管的法律体系问题，完善的法律体系是银行监管达到目标的保证。我国由于历史遗留等多方面的原因，法律的制定、执行方面极其薄弱，这方面的工作急待加强。具体说来，可以从三个方面来加以完善，第一是主体法律的完善；第二是相关法律配套实施细则的制定；第三就是法律的执行方面。再次就是完善大监管体系。监管体系的建设是搞好银行监管不可缺少的一个环节，一个完善的更多还原

【Abstract】 Bank system is the core of financial system. Its proper operation is the focus of financial health, while bank supervision is crucial to banks proper operation. So bank supervision plays an important role in financial stability and development. This can be illustrated by the words of the Treasurer of Singapore "why we have escaped from Asian financial crisis is strict bank supervision". But, in our country, from the bank cases emerging recently, we can infer that there are a lot of problems in bank supervision. How to improved bank supervision? This is why I write the paper. The basic logic of the paper is as follows: at first, I infer the problem of our bank supervision from several bank cases, and then on the basis of reviewing the development of Chinese bank supervising system, point out its achievements and shortcomings. Secondly, through analyzing four types of bank supervision model in the world, I reach some conclusions that are beneficial to our bank supervision. At last, I employ the conclusion mentioned above to settled the problems of our bank supervision. This paper consists of four parts:In preface, from some cases in our bank system, I introduce the topic-the bank supervision.In the first chapter of the paper, I make a review of the history of Chinese bank supervision. The establishment of Chinese bank supervisory system can be traced to Qing dynasty, when hubu bank acted as central bank to supervise commercial bank. The development of Chinese bank supervisory system after the people’s republic of China was established can be divided into two phrases. In the first phrase (1948-1978), because Chinese economics is a strict plan economics, the function of central bank is limited, and there is almost no bank supervision. While in the second phrase (1978-present), with the development of market economics, commercial bank、 stock market and insurance market are enlarged like mushroom after rain. So the function of the people’s bank of China was enlarged. It supervised not only bank, but also stock market and insurance market. In order to disintegrate the people’s bank of China from such heavy load, and foster the development of Chinese stock market and insurance market, in the 90s, the department of stock market supervision and the department of insurance market supervision were separated from the people’s bank of China. So, now, the main function of the people’s bank of China is to supervise bank and enforce financial policy.Objectively speaking, the people’s bank of China plays an important role in the bank supervision. But there are a lot of problems. For example, sometimes the bank supervision function of the Chinese central bank is contradictory to the financial policy function. On the other side, the idea and technology of Chinese bank supervision lag behind the development of economics. These problems need to be settled.In the second part, I mainly introduced and analyzed four different bank supervision models: the United States model、 the United Kingdom model、 the Singapore model and the German model. American bank regulation has a long history and is recognized as the most perfect、<WP=5>effective bank regulation. The first characteristic of American bank regulation is that there exists umbrella supervision structure to comply with diversified bank structure. Which means that different bank may be supervised by different agency. The second characteristic is "low" idea--not only commercial bank but also central bank must act by law. British bank supervision is distinguished for its self-control system. Self-control idea and mutual-supervision agencies play a more important role in British bank supervision. But in the "Big Bang" reform in 1997, the United Kingdom began to strength its finance supervision system. A new agency FSA is established to supervise the whole finance system. Singapore is a developing country. Because of its limited resources, the government encourages its enterprise to go abroad and compete in a global market. So, to foster bank internationalizatio更多还原