國務院政策例行吹風會材料二
2014年金融改革和支持實體經濟背景材料
（2015年1月23日）
中國銀行業監督管理委員會
一、銀行業經營發展保持穩健態勢
銀行業各項經營管理和風險監管指標穩步向好，保持國際良好水平。截至2014年12月末，銀行業總資產168.2萬億元，同比增長13.6%；各項存款餘額117.4萬億元，增長9.6%；各項貸款餘額86.8萬億元，增長13.3%。截至2014年12月末，銀行業金融機構不良貸款率1.64%，商業銀行不良貸款率1.29%，保持在較低水平；商業銀行撥備覆蓋率保持在230.5%的較高水平。截至2014年11月末，商業銀行資本充足率提高到12.93%，同比增加0.75個百分點。
二、銀行業改革開放
（一）民間資本全面進入銀行業
一是民營銀行試點。銀監會對包括民間資本在內的各類資本入股銀行業金融機構，始終堅持公平競爭、同等待遇的原則。在法規政策中，從未對民間資本入股銀行業金融機構設置額外限制或者條件；在市場準入實踐中，民間資本主要通過發起設立、認購新股、受讓股權、併購重組等方式進入銀行業。
2014年3月，銀監會公布了國務院批准的首批5家民營銀行試點名單，正式啟動民營銀行試點工作。2014年7月24日，銀監會批准深圳前海微眾銀行、溫州民商銀行、天津金城銀行的籌建申請；2014年9月26日，銀監會批准上海華瑞銀行、浙江網商銀行的籌建申請。2014年12月12日，銀監會批准深圳前海微眾銀行開業。
二是完善民間資本投資農村中小金融機構相關制度。印發《中國銀監會關於鼓勵和引導民間資本參與農村信用社產權改革工作的通知》（銀監發〔2014〕45號，2014年11月），將併購方合計持股比例從10%調整放寬至20%，特殊情況的可階段性超過20%。印發《中國銀監會關於進一步促進村鎮銀行健康發展的指導意見》（銀監發〔2014〕46號，2014年12月）和《中國銀監會辦公廳關於推進農村商業銀行組建工作的通知》（銀監辦發〔2014〕286號，2014年12月）。
目前，全國農村合作金融機構民資佔比接近90%，村鎮銀行民資佔比超過70%。此外，已有100多家中小銀行的民資佔比超過50%，其中部分為100%民資。
三是穩步推進民間資本發起設立金融租賃公司和消費金融公司。印發《金融租賃公司管理辦法》（中國銀監會令2014年第3號，2014年3月）、《消費金融公司試點管理辦法》（中國銀監會令2013年第2號，2013年11月）。
（二）普惠金融
引導銀行業金融機構持續加大對農業規模化生產和集約化經營的金融支持。牽頭發展新型農村合作金融組織研究工作，引導規範開展農村信用合作。印發《中國銀監會辦公廳關於做好2014年農村金融服務工作的通知》（銀監辦發〔2014〕42號，2014年3月），督促銀行業金融機構持續增加涉農貸款投入總量。
（三）簡政放權
2014年，銀監會印發《中國銀監會辦公廳關於推進簡政放權改進市場準入工作有關事項的通知》（銀監辦發〔2014〕176號，2014年6月），並先後修訂發布《中國銀監會中資商業銀行行政許可事項實施辦法》（中國銀監會令2013年第1號，2013年10月）、《中國銀監會農村中小金融機構行政許可事項實施辦法》（中國銀監會令2014年第4號,2014年3月）、《中國銀監會外資銀行行政許可事項實施辦法》（中國銀監會令2014年第6號，2014年9月）。
近日，銀監會又進行監管架構改革，下放行政權力，明確風險監管主體職責，強化事中事後監管。銀監會本著風險為本、法人監管、屬地負責的原則，進一步明確了總會與派出機構之間的風險監管職責和權力，對於全國性機構，主要由總會各機構監管部門承擔風險監管主體責任，派出機構負相應監管協助責任；對於地方性機構，總會僅對法人機構的新設籌建、市場退出、重組改制和破產重整進行審批，其他市場準入權力下放給銀監局，並由註冊所在地派出機構承擔風險監管主體責任，總會相應監管部門負指導責任。同時，銀監會按照放管結合的要求，在明確職責分工和下放監管權力的基礎上，建立總會對派出機構履行準入管理和監管盡職情況的後評價機制，建立行政許可負面清單和問責清單，凡發生派出機構未盡到屬地主體監管責任的，總會可視情況約束或上收監管權力，實現對派出機構按履職能力進行差異化授權和嚴格問責。調整後，實現還權於市場，讓權於社會，放權於基層。
（四）深化銀行業治理體系改革
一是公司治理體系改革。會同財政部、人民銀行、證監會、保監會印發《金融資產管理公司監管辦法》（銀監發〔2014〕41號，2014年10月），從集團層面強化公司治理。印發《中國銀監會辦公廳關於加強村鎮銀行公司治理的指導意見》（銀監辦發〔2014〕280號，2014年12月）。印發《加強農村商業銀行三農金融服務機制建設監管指引》（銀監辦發〔2014〕287號，2014年12月）。
二是業務治理體系改革。理財業務治理方面，印發《中國銀監會辦公廳關於2014年銀行理財業務監管工作的指導意見》（銀監辦發〔2014〕39號，2014年2月）、《中國銀監會關於完善銀行理財業務組織管理體系有關事項的通知》（銀監發〔2014〕35號，2014年7月）。同業業務治理方面，2014年5月，印發《中國銀監會辦公廳關於規範商業銀行同業業務治理的通知》（銀監辦發〔2014〕140號），5月還會同人民銀行、證監會、保監會、外匯局印發《關於規範金融機構同業業務的通知》（銀髮〔2014〕127號，2014年5月）。
三是風險治理體系改革。印發《中國銀監會關於印發商業銀行並表管理與監管指引的通知》（銀監發〔2014〕54號，2014年12月）。會同證監會印發《關於商業銀行發行優先股補充一級資本的指導意見》（銀監發〔2014〕12號，2014年4月）。2014年6月，銀監會印發《商業銀行監管評級內部指引》（銀監發〔2014〕32號）。印發《商業銀行流動性風險管理辦法（試行）》（中國銀監會令2014年第2號，2014年1月）。
四是行業治理體系改革。會同財政部印發《信託業保障基金管理辦法》（銀監發〔2014〕50號，2014年12月）。
（五）進一步擴大對外開放
2014年9月，修訂發布《中國銀監會外資銀行行政許可事項實施辦法》（中國銀監會令2014年第6號），調整外資銀行準入條件。2014年12月，修訂發布《中華人民共和國外資銀行管理條例》。
截至2014年12月末，外資銀行在華共設立40家外資法人銀行、1家外資財務公司、97家外國銀行分行和182家外資銀行代表處。外資銀行營業性機構（含總、分、支行）總數達到1000家，分布於全國69個城市。2014年，銀監會共批准35家外資銀行分行籌建。
截至2014年11月末，在華外資銀行資產餘額約2.7萬億元，貸款餘額約1.2萬億元，存款餘額約1.5萬億元，實現利潤206億元，不良貸款率0.78%，流動性比例72.85%，9月末資本充足率17.17%。
三、銀行業服務實體
（一）多管齊下降低融資成本，引導銀行業提升小微企業貸款管理效率。2014年7月，印發《中國銀監會關於完善和創新小微企業貸款服務 提高小微企業金融服務水平的通知》（銀監發〔2014〕36號）。
加強商業銀行存款偏離度管理。2014年9月，會同財政部、人民銀行印發《關於加強商業銀行存款偏離度管理有關事項的通知》（銀監辦發〔2014〕236號）。
清理整頓不合理服務收費。會同發改委全面開展了銀行業收費專項檢查，包括銀行自查、銀監局重點抽查、銀監會督查、銀監會和發改委聯合檢查四個環節。印發《中國銀監會關於開展銀行業收費專項檢查的通知》（銀監發〔2014〕31號，2014年6月），並會同發展改革委印發《銀行業收費專項檢查工作方案》（銀監辦發〔2014〕199號，2014年7月）。
（二）大力發展普惠金融。截至2014年11月末，銀行業新增小微企業貸款2.6萬億元，增速達到14.9%，高於平均貸款增速1.9個百分點；新增涉農貸款2.7萬億元（不含票據），增速達到12.6%，高於平均貸款增速0.7個百分點。剔除不良加速核銷、企業分類調整等因素後，小微和涉農貸款繼續實現「兩個不低於」。銀行業消費者保護工作進一步加強，全國49個金融機構空白鄉鎮、2308個城鎮社區和318個小微企業集中地區增設了銀行網點，50多萬個行政村實現了基礎金融服務全覆蓋。
（三）盤活資金存量，提高銀行資金來源多元化和穩定性。2014年6月，印發《中國銀監會關於調整商業銀行存貸比計算口徑的通知》（銀監發〔2014〕34號）。持續推進信貸資產證券化擴大試點工作，截至2014年12月末47家機構已在銀行間市場和交易所市場成功發行信貸資產支持證券2814億元。2014年11月，印發《關於信貸資產證券化備案登記工作流程的通知》（銀監辦便函〔2014〕1092號），簡化信貸資產證券化流程。
Materials for State Council Policies Briefing
Financial Reform and Financial Support to the Real Economy
in 2014
（23 January 2015）
China Banking Regulatory Commission
I. Safe and sound performance of the Banking Sector
In 2014, the banking sector maintained sound performance with risks well controlled, keeping abreast with leading international peers. As of end-2014, the aggregate assets of China’s banking sector increased by 13.6 percent year-on-year to RMB 168.2 trillion; the outstanding balance of deposits grew by 9.6 percent to RMB 117.4 trillion; and the outstanding balance of loans went up by 13.3 percent to RMB 86.8 trillion. As of end-2014, the non-performing loans (NPL) ratio of China’s banking institutions was 1.64 percent, among which, the NPL ratio of commercial banks was kept at a relatively low level of 1.29 percent. Meanwhile, the provisioning coverage ratio of commercial banks rose up to 230.5 percent. By the end of November 2014, the capital adequacy ratio of commercial banks reached 12.93 percent, up by 0.75 percentage point.
II. Banking reform and opening-up
1. Promoting wider participation of private capital in the banking sector
First is the launch of the pilot program of establishing private banks. The CBRC adheres to the principle of fairness and equal treatment to all forms of capital, including private capital, in their investment in the banking sector. There are no additional legal or regulatory barriers or preconditions inhibiting the flow of private capital into banking institutions. In terms of market entry, private capital flows to the banking sector through participating in new entities establishment, new shares subscription, equity purchase, and mergers & acquisitions.
In March 2014, the CBRC released the first batch of five private banks on a trial basis approved by the State Council, officially launching the pilot program of private banks. On July 24th, 2014, the CBRC approved the application for establishment of Shenzhen Qianhai Weizhong Bank (also known as WeBank), Wenzhou Minshang Bank and Tianjin Jincheng Bank. On September 26th, 2014, the CBRC approved the application for establishment of Shanghai Huarui Bank and Zhejiang Wangshang Bank. On December 12th, 2014, the CBRC approved the application of WeBank for business operation.
Second is the relaxation of relevant legal and regulatory procedures for private capital investing in small- and medium-sized rural financial institutions. In November 2014, the CBRC issued the Notice on Encouraging and Guiding Private Capital to Participate in the Ownership Reform of Rural Credit Cooperatives (Yin Jian Fa No.45, 2014), raising the upper limit of acquirers』 aggregate shareholding from 10% to 20%, and even allowing the exceeding of 20% threshold under specific conditions within a certain period of time. In December 2014, the CBRC issued the Guiding Opinions on Further Promoting the Healthy Development of Village and Township Banks (Yin Jian Fa No.46, 2014), and the Notice on Promoting the Institutional Restructuring of Rural Commercial Banks (Yin Jian Ban Fa No.286, 2014) .
Currently, the proportion of private capital is nearly 90% in the total capital of rural cooperative financial institutions, while in township and village banks, the ratio of private capital has exceeded 70%. Furthermore, more than 100 small- and medium-sized banks have over 50% private capital in their capital composition, some of which are even 100 percent privately funded.
Third is the steady promotion of private capital to initiate the establishment of financial leasing companies and consumer finance companies. In March 2014, the CBRC issued theAdministrative Rules on the Financial Leasing Companies (Decree of the CBRC No.3, 2014). In November 2013, the CBRC promulgated the Administrative Rules on the Pilot Program of Consumer Finance Companies (Decree of the CBRC No.2, 2013).
2. Financial Inclusion
The CBRC has been guiding banking institutions to continuously improve financial support to agricultural scale production and intensive management. Research work has been carried out on developing new-type rural cooperative financial institutions, so as to further standardize rural credit cooperations. The CBRC General Office issued the Notice on Improving Rural Financial Services in 2014 (Yin Jian Ban Fa No.42, 2014) in March 2014, urging banking institutions to increase the proportion of agro-related loans.
3. Streamlining administration and power delegation
In 2014, the CBRC issued the Notice on Further Streamlining Administration and Delegating Power to Improve Market Entry (Yin Jian Ban Fa No. 176, 2014), and amended the Implementation Rules on Administrative Licensing for Commercial Banks (Decree of the CBRC, No. 1, 2013), the Implementation Rules on Administrative Licensing for Small- and Medium-Sized Rural Financial Institutions (Decree of the CBRC, No. 4, 2014), and the Implementation Rules on Administrative Licensing for Foreign Banks (Decree of the CBRC, No. 6, September 2014).
Recently, the CBRC has conducted supervisory structural reform, delegated administrative power, clarified the responsibility lines, and strengthened in-process and follow-up supervision. In line with the risk-based approach, the CBRC further clarified the responsibility lines between the head office and its local offices, following the principle of head office mainly supervising legal entities and local offices taking primary responsibility in supervising institutions within their jurisdictions. For nation-wide institutions, relevant supervisory departments in the head office shall shoulder main responsibilities of risk supervision, while local offices shall give support and take supplementary responsibilities. For regional institutions, the CBRC head office is only responsible for the approval of setting up new institutions, market exit, the restructuring of legal entities both before and after bankruptcy, while delegating other market entry power to the CBRC local offices. As for the local offices, they are given the main responsibilities to supervise the institutions within the jurisdictions, while the head office plays a guiding role.
Meanwhile, in line with the requirement of balancing the power between the head office and local offices and on the basis of clarifying responsibility lines and delegating power, the post-evaluation mechanism has be established which allows the head office to assess the market entry management and due diligence of the local offices. The negative list and accountability list have also been set up with respect to administrative licensing. In case the local offices fail to fulfill their main supervisory responsibilities, the head office can choose to constrain or withdraw their power based on specific cases, so as to authorize differentiated power to local offices based on their different capacities and strictly reinforce accountability. After the adjustment, the power is expected to be given back to the market and society and delegated to the local level.
4. Further reform of the banking governance system
First is the reform of the corporate governance system. Together with the Ministry of Finance, People’s Bank of China, China Securities Regulatory Commission, and China Insurance Regulatory Commission, the CBRC issued the Regulatory Measures on Banking Asset Management Companies (Yin Jian Fa No.41, 2014) to enhance corporate governance at the group level. The CBRC also issued the Guiding Opinions on Strengthening Corporate Governance of Village and Township Banks (Yin Jian Ban Fa No.280, 2014) and the Supervisory Guidelines to Strengthen Institutional Development of Financial Services to Agriculture, Farmers and Rural Area by Rural Commercial Banks (Yin Jian Ban Fa No.287, 2014).
Second is the reform of business governance system. For the wealth management business governance, the CBRC issued the Guiding Opinions on the Supervision of Wealth Management Business in 2014 (Yin Jian Ban Fa No.39, 2014) and the Notice on Improving the Organizational and Management Structure of Wealth Management Business of Banking Institutions (Yin Jian Fa No.35, 2014). For inter-bank business governance, the CBRC issued the Notice on Standardizing the Governance of Inter-bank Business of Commercial Banks (Yin Jian Ban Fa No.140, 2014). In May 2014, together with the People’s Bank of China, China Securities Regulatory Commission, China Insurance Regulatory Commission, State Administration of Foreign Exchange, the CBRC issued the Notice on Regulating Inter-bank Business of Financial Institutions (Yin Fa No.127, 2014).
Third is the reform of risk governance system. The CBRC issued theNotice on Issuing Consolidated Management and Supervisory Guidelines of Commercial Banks (Yin Jian Fa No.54, 2014). Together with the China Securities Regulatory Commission the CBRC issued the Guiding Opinions on the Issuance of Preferred Shares by Commercial Banks to Replenish Tier 1 Capital (Yin Jian Fa No.12, 2014). In June, 2014, the CBRC issued the Internal Guidelines on Supervisory Ratings of Commercial Banks (Yin Jian Fa No.32, 2014) and theAdministrative Rules on Liquidity Risk Management of Commercial Banks (Provisional)(Decree of the CBRC, No.2, 2014).
Fourth is the reform of the industry governance system. Together with the Ministry of Finance, the CBRC issued the Administrative Rules on Security Fund of the Trust Industry (Yin Jian Fa No.50, 2014).
5. Wider opening-up of the banking sector
In September 2014, the CBRC amended and issued the Implementation Rules on Administrative Licensing for Foreign Banks (Degree of the CBRC No. 6, 2014), adjusting the market entry requirements for foreign banks. In December 2014, the CBRC amended and issued theRegulations of the People’s Republic of China on Administration of Foreign-funded Banks.
By the end of December 2014, foreign banking institutions had established 40 locally incorporated banks, 1 finance company, 97 foreign bank branches and 182 representative offices in China. Over 1,000 operating outlets have been set up by foreign banks in 69 cities in China, including head offices, branches and sub-branches. In 2014, the CBRC approved 35 foreign banks to establish branches.
By the end of November 2014, the outstanding balance of total assets of foreign banks was RMB 2.7 trillion, and the outstanding balance of loans and deposits registered at RMB 1.2 trillion and RMB 1.5 trillion respectively. The profits of foreign banks reached RMB 20.6 billion, with the NPL ratio at 0.78% and the liquidity ratio at 72.85 %. By the end of September, the capital adequacy ratio of foreign banks was 17.17%
III Banking sector serving the real economy
1. Financing cost was reduced through various means and management efficiency of loans improved for micro- and small- enterprises (MSEs). In July 2014, the CBRC issued the Notice on Improving and Innovating MSE Loan Services and Enhancing Financial Services for MSEs (Yin Jian Fa No. 36, 2014).
The management of deposit deviation was further enhanced by commercial banks was further enhanced. In September 2014, together with the Ministry of Finance and the People’s Bank of China, the CBRC issued the Notice on Strengthening Management of Deposit Deviation by Commercial Banks (Yin Jian Ban Fa No. 236, 2014).
Inappropriate banking service charges was sorted out. Together with the National Development and Reform Commission (NDRC), the CBRC conducted thematic inspections on the banking service charges, including procedures of self-examinations by banks, selective examinations by CBRC local offices, inspections by the CBRC head office, and joint examinations by the CBRC and the NDRC. In 2014, the CBRC issued the Notice on Conducting Examination on Banking Service Charges (Yin Jian Fa No. 31, 2014), and the CBRC and the NDRC together issued the Working Plan for Examination on Banking Service Charges (Yin Jian Ban Fa No. 199, 2014).
2. Pushing forward financial inclusion
By the end of November 2014, new loans extended to micro- and small-sized enterprises (MSEs) reached RMB 2.6 trillion, with a growth rate of 14.9%, which is 1.9 percentage points higher than the average growth rate of all loans; new agro-related loans were RMB 2.7 trillion (notes not included) with a growth rate of 12.6%, which is 0.7 percentage point higher than the average growth rate of all loans. Excluding the accelerated NPL write-off and the adjusted classification of enterprises, the growth rate of both MSE loans and agro-related loans are no lower than the average growth rate of all loans, and the total incremental volume of such loans are no lower than that of the previous year. In addition, banking consumer protection has been strengthened. Banking outlets were set up in 49 unbanked villages and towns, 2308 urban communities, and 318 MSE-intensive areas, and over 500,000 administrative villages have gained access to basic financial services.
3. Tapping into the idle capital and further diversifying and stabilizing capital sources of banks
In June 2014, the CBRC issued the Notice on Adjusting Loan-to-Deposit Calculation Methods for Commercial Banks (Yin Jian Fa No.34, 2014). The pilot program of credit assets securitization has been continuously expanded. By the end of 2014, 47 financial institutions had issued credit assets-backed securities worth of RMB 281 billion in inter-bank market and exchange market. In November 2014, the CBRC issued the Notice on Reporting and Registration Procedures of Credit Assets Securitization (Yin Jian Ban Informal Letter No.1092, 2014), in a bid to further streamline the process of credit assets securitization.