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1、商业银行合规管理实用手册(附光盘)商业银行合规管理实用手册 序言 市场经济就是法治经济。金融市场在市场经济体系中占有极其重要的基础地位，而银行业在金融市场中又具有举足轻重的地位，因此如何运用法律手段在银行业领域实施有效监管、规范维护行业秩序和防范化解行业风险具有格外重要的意义。国内外商业银行的发展实践证明，将商业银行经营管理活动纳入依法合规的轨道，既是商业银行生存发展的基本前提，也是商业银行稳健经营的关键所在，更是银行业市场持续健康发展的必然要求。 合规管理作为一门独特的银行风险管理技术，如今已得到全球银行业的普遍认同和高度重视。2005年5月，巴塞尔银行监管管理委员会发布了题为合规与银行合规
2、部门的文件，这既是对于国际领先银行合规工作经验的总结，也明确了国际银行监管标准的发展趋势。根据文件规定，合规风险是指“银行由于未能遵循法律法规、监管规定、自律性组织准则以及适用于银行自身业务活动的行为准则，而可能遭受法律制裁、监管处罚、重大财务损失和声誉损失的风险。”由此可见，合规管理实质上就是银行管理自身合规风险的职能，这在国际上已被公认为银行的安身立命之本。 反观国内，近年来银行业频频发生的大案要案恰恰说明“合规文化”在我国银行业的缺失，“合规文化”的经营理念还远远没有浸润到银行的日常管理机制中。在此背景之下，中国银行业监督管理委员会根据合规与银行合规部门，结合中国银行业监管实践，于200
3、6年10月制定了商业银行合规风险管理指引，正式将商业银行合规管理工作纳入监管范围，因此正确认识合规管理的重要意义显得正当其时。首先，合规管理是应对全面监管要求的重要保证。随着国内全方位和多层次的监管格局的形成，监管当局逐渐借鉴国际上银行监管的先进理念和最佳做法，银行业的监管环境日益严格、监管要求日益复杂，商业银行内部必须建立起有效的合规管理体系来识别评估和防范化解各类合规风险。其次，合规管理是银行全面风险管理体系的重要组成部分。全面风险管理是对银行业务管理中存在的各类风险实施系统管理，而合规风险则是各类风险中的核心风险，尤其是形成操作风险的直接诱因，因此强化合规风险管理是实现全面风险管理的重要
4、基础。最后，合规管理是实现银行自身健康发展的内在需求。有种错误的观点认为合规管理是一种成本负担，甚至视合规是业务发展的掣肘。我们必须树立“合规创造价值”的理念，因为健全有效的合规管理可以提升银行的商业信誉和社会形象，提高银行的竞争能力和业务效益；相反，严重的合规缺陷会使银行付出惨重的违规成本，甚至危及银行的生存，近几年国内外银行业在这方面的反面教训比比皆是。 国际先进银行合规管理的通行做法就是由合规管理部门从法律法规和监管规定中识别和评估合规风险，将这些合规风险及时准确地分解和提示给相关职能部门，敦促这些部门采取有效措施将合规要求有机融入银行内部的规章制度和控制体系，最终确保银行在所有经营管理
5、行为中防范和化解合规风险，较为领先的银行已经着手开发合规风险管理电子系统。因此，对银行必须遵循的法律规定作系统地归纳梳理可以说是开展合规管理的基础建设工作之一。正是基于这一认识，交通银行法律合规部编写了这本商业银行合规管理实用手册，较为全面地收录了我国商业银行所需遵循的法律规定。 根据商业银行经营管理所涉及的法律关系划分，适用于商业银行的法律规定基本可以分为两类，一是银行和客户之间的横向民商事关系，这类关系主要由民商事法律规定调整；二是银行和监管者之间的纵向行政关系，这类关系主要由行政法律规定调整。而商业银行合规管理所要关注的法律规定主要就是由第二类规定构成，这也就是本书所要收录的内容。由于纳
6、入收录范围的是广义的法律，在效力层次和制定部门各有不同，此外这些法律涉及的监管领域、业务种类以及发布时间等方面也各有不同，因此无论按照以上任意一种标准编排，都难免顾此失彼、以偏概全，影响查找适用的效率。有鉴于此，我们根据自身工作实践，以系统划分、方便查找为原则，确定了本书的体例编排结构：第一层次，以效力层次和监管板块作为编排标准，即以狭义的法律（由全国人大及其常委会制定）和行业自律准则分别立章，同时将监管板块作为行政法规、行政规章以及规范性文件的划分标准，分列市场准入监管、公司治理监管、风险内控监管、业务运营监管、外汇业务监管、外资银行监管以及监管查处与法律救济七章。第二层次，以调整对象和业务
7、种类作为编排标准，除了法律和行业自律准则两章，其他篇章内部均根据调整对象和业务种类作进一步划分，尤其是业务运营监管和外汇业务监管的划分层级较为细致，对于部分涉及多个业务种类的法律规定，我们将其纳入关联度最为密切的业务种类。第三层次，以发布时间和内容体系作为编排标准，法律和行业自律准则两章按照发布时间排序，其他篇章除了发布时间，还按照内容体系分为两个部分：一是内容体系较为健全的章节式法律规定，对于某个调整对象有着较为全面系统地规定，效力层次一般表现为行政法规和行政规章；二是针对某个具体问题所作的临时通知或者补充通知，一般表现为规范性文件。这种编排既有助于统揽法律规定的历史沿革，也有利于把握法律规
8、定的基本全貌和历次更新。当然，本书在收录内容全面性和体例编排合理性上并非尽善尽美，对于存在的不足之处，希望广大读者不吝指正，以使我们不断完善本书。同时，基于合规管理动态性的工作理念，我们将会根据银行法律规定的变化及时更新本书。 编者 2007年9月 Complianceandthecompliancefunctioninbanks Complianceandthecompliance functioninbanks April2005 BaselCommitteeonBankingSupervision Tableofcontents Introduction Responsibilities
9、oftheboardofdirectorsforcompliance Principle1 Responsibilitiesofseniormanagementforcompliance Principle2 Principle3 Principle4 Compliancefunctionprinciples Principle5:Independence Status HeadofCompliance Conflictsofinterest Accesstoinformationandpersonnel Principle6:Resources Principle7:Compliancefu
10、nctionresponsibilities Advice Guidanceandeducation Identification,measurementandassessmentofcompliancerisk Monitoring,testingandreporting Statutoryresponsibilitiesandliaison Complianceprogramme Principle8:RelationshipwithInternalAudit Othermatters Principle9:Crossborderissues Principle10:Outsourcing
11、 Introduction 1.Aspartofitsongoingeffortstoaddressbanksupervisoryissuesandenhancesoundpracticesinbankingorganisations,theBaselCommitteeonBankingSupervision(theCommittee)isissuingthishighlevelpaperoncomplianceriskandthecompliancefunctioninbanks.Bankingsupervisorsmustbesatisfiedthateffectivecompliance
12、policiesandproceduresarefollowedandthatmanagementtakesappropriatecorrectiveactionwhencompliancefailuresareidentified. 2.Compliancestartsatthetop.Itwillbemosteffectiveinacorporateculturethatemphasisesstandardsofhonestyandintegrityandinwhichtheboardofdirectorsandseniormanagementleadbyexample.Itconcern
13、severyonewithinthebankandshouldbeviewedasanintegralpartofthebanksbusinessactivities.Abankshouldholditselftohighstandardswhencarryingonbusiness,andatalltimesstrivetoobservethespiritaswellastheletterofthelaw.Failuretoconsidertheimpactofitsactionsonitsshareholders,customers,employeesandthemarketsmayres
14、ultinsignificantadversepublicityandreputationaldamage,evenifnolawhasbeenbroken. 3.Theexpression“compliancerisk”isdefinedinthispaperastheriskoflegalorregulatorysanctions,materialfinancialloss,orlosstoreputationabankmaysufferasaresultofitsfailuretocomplywithlaws,regulations,rules,relatedselfregulatory
15、organisationstandards,andcodesofconductapplicabletoitsbankingactivities(together,“compliancelaws,rulesandstandards”). 4.Compliancelaws,rulesandstandardsgenerallycovermatterssuchasobservingproperstandardsofmarketconduct,managingconflictsofinterest,treatingcustomersfairly,andensuringthesuitabilityofcu
16、stomeradvice.Theytypicallyincludespecificareassuchasthepreventionofmoneylaunderingandterroristfinancing,andmayextendtotaxlawsthatarerelevanttothestructuringofbankingproductsorcustomeradvice.Abankthatknowinglyparticipatesintransactionsintendedtobeusedbycustomerstoavoidregulatoryorfinancialreportingre
17、quirements,evadetaxliabilitiesorfacilitateillegalconductwillbeexposingitselftosignificantcompliancerisk. 5.Compliancelaws,rulesandstandardshavevarioussources,includingprimarylegislation,rulesandstandardsissuedbylegislatorsandsupervisors,marketconventions,codesofpracticepromotedbyindustryassociations
18、,andinternalcodesofconductapplicabletothestaffmembersofthebank.Forthereasonsmentionedabove,thesearelikelytogobeyondwhatislegallybindingandembracebroaderstandardsofintegrityandethicalconduct. 6.Complianceshouldbepartofthecultureoftheorganisation;itisnotjustthe responsibilityofspecialistcompliancestaf
19、f.Nevertheless,abankwillbeabletomanageitscomplianceriskmoreeffectivelyifithasacompliancefunctioninplacethatisconsistentwiththe“compliancefunctionprinciples”discussedbelow.Theexpression“compliancefunction”isusedinthispapertodescribestaffcarryingoutcomplianceresponsibilities;itisnotintendedtoprescribe
20、aparticularorganisationalstructure. 7.Therearesignificantdifferencesbetweenbanksregardingtheorganisationofthecompliancefunction.Inlargerbanks,compliancestaffmaybelocatedwithinoperatingbusinesslines,andinternationallyactivebanksmayalsohavegroupandlocalcomplianceofficers.Insmallerbanks,compliancefunct
21、ionstaffmaybelocatedinoneunit.Separateunitshavebeenestablishedinsomebanksforspecialistareassuchasdataprotectionandthepreventionofmoneylaunderingandterroristfinancing. 8.Abankshouldorganiseitscompliancefunctionandsetprioritiesforthemanagementofitscomplianceriskinawaythatisconsistentwithitsownriskmana
22、gementstrategyandstructures.Forinstance,somebanksmaywishtoorganisetheircompliancefunctionwithintheiroperationalriskfunction,asthereisacloserelationshipbetweencomplianceriskandcertainaspectsofoperationalrisk.Othersmayprefertohaveseparatecomplianceandoperationalriskfunctions,butestablishmechanismsrequ
23、iringclosecooperationbetweenthetwofunctionsoncompliancematters. 9.Regardlessofhowthecompliancefunctionisorganisedwithinabank,itshouldbeindependentandsufficientlyresourced,itsresponsibilitiesshouldbeclearlyspecified,anditsactivitiesshouldbesubjecttoperiodicandindependentreviewbytheinternalauditfuncti
24、on.Principles5to8belowdescribethesehighlevelprinciplesinmoredetail,andthesupportingguidancesetsoutsoundpracticesrelatedtotheprinciples.Theprinciplesshouldbeapplicabletoallbanks,althoughitisforindividualbankstodeterminehowbesttheyshouldbeimplemented.Abankmaybeabletofollowpracticesotherthanthosesetout
25、inthispaperwhicharealsosoundandwhich,takentogether,demonstratethatitscompliancefunctioniseffective.Thewayinwhichtheprinciplesareimplementedwilldependonfactorssuchasthebankssize,thenature,complexityandgeographicalextentofitsbusiness,andthelegalandregulatoryframeworkwithinwhichitoperates.Insmallerbank
26、s,forexample,itmaynotbepracticabletoimplementinfullsomeofthespecificmeasuresrecommendedinthispaper,yetthebankmaybeabletotakeothermeasuresthatachievethesameresult. 10.Theprinciplesinthispaperassumeagovernancestructurecomposedofaboardofdirectorsandseniormanagement.Thelegislativeandregulatoryframeworks
27、differacrosscountriesandtypesofentitiesasregardsthefunctionsoftheboardofdirectorsandseniormanagement.Therefore,theprinciplessetoutinthispapershouldbeappliedinaccordancewiththecorporategovernancestructureofeachcountryandtypeofentity.TheCommitteeisawarethattherearesignificantdifferencesinlegislativean
28、dregulatoryframeworksacrosscountriesasregardsthefunctionsoftheboardofdirectorsandseniormanagement.Insomecountries,theboardhasthemain,ifnotexclusive,functionofsupervisingtheexecutivebody(seniormanagement,generalmanagement)soastoensurethatthelatterfulfilsitstasks.Forthisreason,insomecases,itisknownasa
29、supervisoryboard.Thismeansthattheboardhasnoexecutivefunctions.Inothercountries,bycontrast,the boardhasabroadercompetenceinthatitlaysdownthegeneralframeworkforthemanagementofthebank.Owingtothesedifferences,thenotionsoftheboardofdirectorsandseniormanagementareusedinthis papernottoidentifylegalconstruc
30、tsbutrathertolabeltwodecisionmakingfunctionswithinabank. 11.Theexpression“bank”isusedinthispapertorefergenerallytobanks,bankinggroups,andtoholdingcompanieswhosesubsidiariesarepredominantlybanks. 12.ThispapershouldbereadinconjunctionwithanumberofrelatedCommitteepapers,includingthefollowing: Framework
31、forInternalControlSystemsinBankingOrganisations(September1998); EnhancingCorporateGovernanceforBankingOrganisations(September1999); InternalAuditinBanksandtheSupervisorsRelationshipwithAuditors(August2001); CustomerDueDiligenceforBanks(October2001); SoundPracticesfortheManagementandSupervisionofOper
32、ationalRisk(February2003); InternationalConvergenceofCapitalMeasurementandCapitalStandardsARevisedFrameworkJune2004;and ConsolidatedKYCRiskManagement(October2004). 13Thispaperconsidersthespecificresponsibilitiesofthebanksboardofdirectorsand seniormanagementforcompliance,beforedescribingtheprinciples
33、thatshouldunderpinthebankscompliancefunction. Responsibilitiesoftheboardofdirectorsforcompliance Principle1 Thebanksboardofdirectorsisresponsibleforoverseeingthemanagementofthebankscompliancerisk.Theboardshouldapprovethebankscompliancepolicy,includingaformaldocumentestablishingapermanentandeffective
34、compliancefunction.Atleastonceayear,theboardoracommitteeoftheboardshouldassesstheextenttowhichthebankismanagingitscomplianceriskeffectively. 14.Asnotedintheintroduction,abankscompliancepolicywillnotbeeffectiveunlesstheboardofdirectorspromotesthevaluesofhonestyandintegritythroughouttheorganisation.Co
35、mpliancewithapplicablelaws,rulesandstandardsshouldbeviewedasanessentialmeanstothisend.Asisthecasewithothercategoriesofrisk,theboardisresponsibleforensuringthatanappropriatepolicyisinplacetomanagethebankscompliancerisk.Theboardshouldoverseetheimplementationofthepolicy,includingensuringthatcompliancei
36、ssuesareresolvedeffectivelyandexpeditiouslybyseniormanagementwiththeassistanceofthecompliancefunction.Theboardmay,ofcourse,delegatethesetaskstoanappropriateboardlevelcommittee(e.g.itsauditcommittee). Responsibilitiesofseniormanagementforcompliance Principle2 Thebanksseniormanagementisresponsiblefort
37、heeffectivemanagementofthebankscompliancerisk. 15.Thefollowingtwoprinciplesarticulatethemostimportantelementsofthisgeneralprinciple. Principle3 Thebanksseniormanagementisresponsibleforestablishingandcommunicatingacompliancepolicy,forensuringthatitisobserved,andforreportingtotheboardofdirectorsonthem
38、anagementofthebankscompliancerisk. 16.Thebanksseniormanagementisresponsibleforestablishingawrittencompliancepolicythatcontainsthebasicprinciplestobefollowedbymanagementandstaff,andexplainsthemainprocessesbywhichcompliancerisksaretobeidentifiedandmanagedthroughalllevelsoftheorganisation.Clarityandtra
39、nsparencymaybepromotedbymakingadistinctionbetweengeneralstandardsforallstaffmembersandrulesthatonlyapplytospecificgroupsofstaff. 17.Thedutyofseniormanagementtoensurethatthecompliancepolicyisobservedentailsresponsibilityforensuringthatappropriateremedialordisciplinaryactionistakenifbreachesareidentif
40、ied. 18.Seniormanagementshould,withtheassistanceofthecompliancefunction: atleastonceayear,identifyandassessthemaincomplianceriskissuesfacingthebankandtheplanstomanagethem.Suchplansshouldaddressanyshortfalls(policy,procedures,implementationorexecution)relatedtohoweffectivelyexistingcomplianceriskshav
41、ebeenmanaged,aswellastheneedforanyadditionalpoliciesorprocedurestodealwithnewcompliancerisksidentifiedasaresultoftheannualcomplianceriskassessment;Seeparagraph41below. atleastonceayear,reporttotheboardofdirectorsoracommitteeoftheboardonthebanksmanagementofitscompliancerisk,insuchamannerastoassistboardmemberstomakeaninformedjudgmentonwhetherthebankismanagingitscomplianceriskeffectively;and reportpromptlytotheboardofdirectorsoracommitteeoftheboardonanymaterialcompliancefailures(e.g.failuresthatmayattractasignificantriskoflegalorregulatorysanctions,materialfinancialloss,orlosstoreputation).
