中华人民共和国外资金融机构管理条例(附英文)
国务院
中华人民共和国外资金融机构管理条例(附英文)
1994年2月25日,国务院
第一章 总 则
第一条 为了适应对外开放和经济发展的需要,加强和完善对外资金融机构的管理,制定本条例。
第二条 本条例所称外资金融机构,是指依照中华人民共和国有关法律、法规的规定,经批准在中国境内设立和营业的下列金融机构:
(一)总行在中国境内的外国资本的银行(以下简称外资银行);
(二)外国银行在中国境内的分行(以下简称外国银行分行);
(三)外国的金融机构同中国的金融机构在中国境内合资经营的银行(以下简称合资银行);
(四)总公司在中国境内的外国资本的财务公司(以下简称外资财务公司);
(五)外国的金融机构同中国的金融机构在中国境内合资经营的财务公司(以下简称合资财务公司)。
设立外资金融机构的地区,由国务院确定。
第三条 外资金融机构必须遵守中华人民共和国法律、法规,不得损害中华人民共和国的社会公共利益。
外资金融机构的正当经营活动和合法权益受中华人民共和国法律保护。
第四条 中国人民银行是管理和监督外资金融机构的主管机关;外资金融机构所在地区的中国人民银行分支机构对本地区外资金融机构进行日常管理和监督。
第二章 设立与登记
第五条 外资银行、合资银行的最低注册资本为3亿元人民币等值的自由兑换货币;外资财务公司、合资财务公司的最低注册资本为2亿元人民币等值的自由兑换货币;其实收资本不低于其注册资本的50%。
外国银行分行应当由其总行无偿拨给不少于1亿元人民币等值的自由兑换货币的营运资金。
第六条 设立外资银行或者外资财务公司,申请者应当具备下列条件:
(一)申请者为金融机构;
(二)申请者在中国境内已经设立代表机构2年以上;
(三)申请者提出设立申请前1年年末总资产不少于100亿美元;
(四)申请者所在国家或者地区有完善的金融监督管理制度。
第七条 设立外国银行分行,申请者应当具备下列条件:
(一)申请者在中国境内已经设立代表机构2年以上;
(二)申请者提出设立申请前1年年末总资产不少于200亿美元;
(三)申请者所在国家或者地区有完善的金融监督管理制度。
第八条 设立合资银行或者合资财务公司,申请者应当具备下列条件:
(一)合资各方均为金融机构;
(二)外国合资者在中国境内已经设立代表机构;
(三)外国合资者提出设立申请前1年年末总资产不少于100亿美元;
(四)外国合资者所在国家或者地区有完善的金融监督管理制度。
第九条 设立外资银行或者外资财务公司,应当由申请者向中国人民银行提出书面申请,并提交下列资料:
(一)设立外资银行或者外资财务公司的申请书,其内容包括:拟设外资银行或者外资财务公司的名称,注册资本和实收资本额,申请经营的业务种类等;
(二)可行性研究报告;
(三)拟设外资银行或者外资财务公司的章程;
(四) 申请者所在国家或者地区有关主管当局核发的营业执照(副本);
(五)申请者最近3年的年报;
(六)中国人民银行要求提供的其他资料。
第十条 设立外国银行分行,应当由外国银行总行向中国人民银行提出书面申请,并提交下列资料:
(一)法定代表人签署的申请书,其内容包括:拟设外国银行分行的名称,总行无偿拨给的营运资金数额,申请经营的业务种类等;
(二)申请者所在国家或者地区有关主管当局核发的营业执照(副本);
(三)申请者最近3年的年报;
(四)中国人民银行要求提供的其他资料。
第十一条 设立合资银行或者合资财务公司,应当由合资各方共同向中国人民银行提出书面申请,并提交下列资料:
(一)设立合资银行或者合资财务公司的申请书,其内容包括:拟设合资银行或者合资财务公司的名称,合资各方名称,注册资本和实收资本额,合资各方出资比例,申请经营的业务种类等;
(二)可行性研究报告;
(三)合资经营合同及拟设合资银行或者合资财务公司的章程;
(四)申请者所在国家或者地区有关主管当局核发给合资各方的营业执照(副本);
(五)合资各方最近3年的年报;
(六)中国人民银行要求提供的其他资料。
第十二条 本条例第九条、第十条、第十一条所列资料,除年报外,凡用外文书写的,应当附有中文译本。
第十三条 中国人民银行对设立外资金融机构的申请初步审查同意后,发给申请者正式申请表。申请者自提出设立申请之日起满90日未接到正式申请表的,其设立申请即为不予受理。
第十四条 申请者应当自接到正式申请表之日起60日内将填写好的申请表连同下列文件报中国人民银行审批:
(一)拟设外资金融机构主要负责人名单及简历;
(二)对拟任该外资金融机构主要负责人的授权书;
(三)设立外国银行分行的,其总行对该分行承担税务、债务的责任担保书;
(四)中国人民银行要求提供的其他文件。
第十五条 外资金融机构自接到中国人民银行批准文件之日起30日内,应当筹足其实收资本或者营运资金,并调入中国境内,经中国注册会计师验证后依法向工商行政管理机关办理登记,并依法自开业之日起30日内向税务机关办理税务登记。
第十六条 外资金融机构自中国人民银行审查批准之日起30日内,应当向国家外汇管理局领取《经营外汇业务许可证》。
第三章 业务范围
第十七条 外资银行、外国银行分行、合资银行按照中国人民银行批准的业务范围,可以部分或者全部经营下列种类的业务:
(一)外汇存款;
(二)外汇放款;
(三)外汇票据贴现;
(四)经批准的外汇投资;
(五)外汇汇款;
(六)外汇担保;
(七)进出口结算;
(八)自营和代客户买卖外汇;
(九)代理外币及外汇票据兑换;
(十)代理外币信用卡付款;
(十一)保管及保管箱业务;
(十二)资信调查和咨询;
(十三)经批准的本币业务和其他外币业务。
第十八条 外资财务公司、合资财务公司按照中国人民银行批准的业务范围,可以部分或者全部经营下列种类的业务:
(一)每笔不少于10万美元,期限不少于3个月的外汇存款;
(二)外汇放款;
(三)外汇票据贴现;
(四)经批准的外汇投资;
(五)外汇担保;
(六)自营和代客户买卖外汇;
(七)资信调查和咨询;
(八)外汇信托;
(九)经批准的本币业务和其他外币业务。
第十九条 本章所称外汇存款,是指以外币表示的下列存款:
(一)中国境内、境外同业存款;
(二)中国境外非同业存款;
(三)中国境内外国人的存款;
(四)华侨和香港、澳门、台湾同胞的存款;
(五)外商投资企业存款;
(六)外资金融机构对非外商投资企业放款的转存款;
(七)经批准的其他外汇存款。
第二十条 本章所称外汇汇款,是指境外汇入汇款和境内外商投资企业、外国人、华侨以及香港、澳门、台湾同胞的汇出汇款。
第二十一条 本章所称进出口结算,是指外资银行、外国银行分行、合资银行办理的外商投资企业的进出口结算和经批准的非外商投资企业的出口结算以及放款项下的进口结算。
第四章 监督管理
第二十二条 外资金融机构的存款、放款利率及各种手续费率,由外资金融机构按照中国人民银行的有关规定确定。
第二十三条 外资金融机构经营存款业务,应当向所在地区的中国人民银行分支机构缴存存款准备金,其比率由中国人民银行制定,并根据需要进行调整。存款准备金不计付利息。
第二十四条 外国银行分行的营运资金的30%应当以中国人民银行指定的生息资产形式存在,包括在中国人民银行指定的银行的存款等。
第二十五条 外资银行、合资银行、外资财务公司、合资财务公司的总资产不得超过其实收资本加储备金之和的20倍。
第二十六条 外资银行、合资银行、外资财务公司、合资财务公司对1个企业及其关联企业的放款,不得超过其实收资本加储备金之和的30%,但是经中国人民银行特许的除外。
第二十七条 外资银行、合资银行、外资财务公司、合资财务公司的投资总额不得超过其实收资本加储备金之和的30%,但是经中国人民银行批准投资于金融机构的除外。
第二十八条 外资银行、合资银行、外资财务公司、合资财务公司的固定资产不得超过其实收资本加储备金之和的40%。
第二十九条 外资金融机构应当确保其资产的流动性。具体办法由中国人民银行另行制定。
第三十条 外资金融机构从中国境内吸收的存款不得超过其总资产的40%。
第三十一条 外资金融机构应当按照规定计提呆帐(坏帐)准备金。
第三十二条 外资银行、合资银行、外资财务公司、合资财务公司的实收资本低于注册资本的,必须每年从其税后利润中提取25%予以补充,直至其实收资本加储备金之和等于其注册资本。
第三十三条 外资金融机构应当聘用至少1名中国公民为高层管理人员。
第三十四条 外资金融机构应当聘用中国注册会计师,并经所在地区的中国人民银行分行认可。
第三十五条 外资金融机构有下列情况之一的,须经中国人民银行批准,并依法向工商行政管理机关办理有关登记:
(一)设立分支机构;
(二)调整、转让注册资本,追加、减少营运资金;
(三)变更机构名称或者营业场所;
(四)更换高层管理人员。
第三十六条 外资金融机构应当按照规定向中国人民银行及其有关分支机构报送财务报表和有关资料。
第三十七条 中国人民银行及其有关分支机构有权检查、稽核外资金融机构的经营管理和财务状况。
第五章 解散与清算
第三十八条 外资金融机构自行终止业务活动,应当在距终止业务活动30日前以书面形式向中国人民银行提出申请,经中国人民银行审查批准后予以解散并进行清算。
第三十九条 外资金融机构无力清偿到期债务的,中国人民银行可以责令其停业,限期清理。在清理期限内,已恢复偿付能力、需要复业的,必须向中国人民银行提出复业申请;超过清理期限,仍未恢复偿付能力的,应当进行清算。
第四十条 外资金融机构因解散、依法被撤销或者宣告破产而终止的,其清算的具体事宜,参照中国有关法律、法规的规定办理。
第四十一条 外资金融机构清算终结,应当在法定期限内向原登记机关办理注销登记。
第六章 罚 则
第四十二条 违反本条例第二章的规定,未经批准擅自设立外资金融机构的,由中国人民银行予以取缔,没收其非法所得,并可以处5万元至10万元人民币等值外汇的罚款。
第四十三条 外资金融机构违反本条例第三章的规定,超越批准的业务范围从事经营的,由中国人民银行或其有关分支机构责令其停止所超越部分的经营活动,没收其超越部分的非法所得,并可以处1万元至5万元人民币等值外汇的罚款。
第四十四条 外资金融机构违反本条例第四章的有关规定从事经营的,中国人民银行或其有关分行有权责令其纠正、调整业务或者补足有关资金,并可以处5000元至3万元人民币等值外汇的罚款。
第四十五条 外资金融机构违反第四章的有关规定,未按期报送财务报表和有关资料的,由中国人民银行或其有关分支机构予以警告、通报,责令限期补报,并可以处3000元至2万元人民币等值外汇的罚款。
第四十六条 外资金融机构违反本条例,除依照本章第四十三条、第四十四条、第四十五条的有关规定予以处罚外,情节严重的,中国人民银行可以责令其停业直至吊销其营业许可证。
第四十七条 外资金融机构违反中华人民共和国其他法律、法规的,由有关主管机关依法处理。
第七章 附 则
第四十八条 香港、澳门和台湾的金融机构在境内设立和营业的金融业务机构,比照适用本条例。
第四十九条 对外国金融机构驻华代表机构的管理办法,由中国人民银行另行制定。
第五十条 本条例由中国人民银行负责解释;实施细则由中国人民银行制定。
第五十一条 本条例自1994年4月1日起施行。1985年4月2日国务院发布的《中华人民共和国经济特区外资银行、中外合资银行管理条例》和1990年9月7日国务院批准、1990年9月8日中国人民银行发布的《上海外资金融机构、中外合资金融机构管理办法》同时废止。
Regulations of the People's Republic of China Governing FinancialInstitutions with Foreign Capital
(Promulgated on February 25, 1994)
Whole document
Regulations of the People's Republic of China Governing Financial
Institutions with Foreign Capital
(Promulgated on February 25, 1994)
Chapter I General Principles
Article 1
These Regulations are formulated in order to meet the needs of opening
to the outside world and economic development, strengthen and improve the
management of financial institutions with foreign capital.
Article 2
Financial institutions with foreign capital mentioned in these
Regulations refer to the following financial institutions that are
established and operate in China upon approval in accordance with the
relevant laws and regulations of the People's Republic of China:
(1) subsidiary banks incorporated by foreign capital whose head
offices are in China (hereinafter referred to as foreign banks);
(2) branches of foreign banks in China (hereinafter referred to as
foreign bank branches);
(3) banks incorporated jointly by foreign and Chinese equity
institutions (hereinafter referred to as equity joint-venture banks);
(4) finance companies incorporated by foreign capital whose head
offices are in China (hereinafter referred to as foreign finance
companies); and
(5) finance companies incorporated jointly by foreign and Chinese
financial institutions (hereinafter referred to as equity joint-venture
finance companies).
The State Council determines the locations that are open to financial
institutions with foreign capital.
Article 3
Financial institutions with foreign capital shall abide by the laws
and regulations of the People's Republic of China, and shall not engage in
activities that harm the social and public interests of the People's
Republic of China.
The legitimate business operation and lawful rights and interests of
the financial institutions with foreign capital shall be protected by the
laws of the People's Republic of China.
Article 4
The People's Bank of China is the sole regulatory authority
responsible for the regulation and supervision of the financial
institutions with foreign capital; the branches of the People's Bank of
China exercise routine regulation and supervision of the financial
institutions with foreign capital in their jurisdiction.
Chapter II Establishment and Registration
Article 5
The minimum registered capital for a foreign bank or an equity
joint-venture bank shall be in amount of a freely convertible currency
equivalent to RMB 300 million yuan; and that for a foreign finance company
or an equity joint-venture finance company shall be in amount of a freely
convertible currency equivalent to RMB 200 million yuan, of which, the
paid-up capital shall not be below 50 percent of the registered capital.
The head office of a foreign bank branch shall allocate a working
capital in a freely convertible currency equivalent to no less than RMB
100 million yuan to its branches without any repayment or recompense.
Article 6
The applicant for the establishment of a foreign bank or a foreign
finance company is subject to the following conditions:
(1) the applicant is a financial institution;
(2) the applicant has maintained a representative office in China for
two years or longer;
(3) the total assets of the applicant at the end of the year prior to
its application are not be below US $ 10 billion; and
(4) there is a sound system for financial regulation and supervision
in the home country or region of the applicant.
Article 7
To establish a foreign bank branch, the applicant is subject to the
following conditions:
(1) the applicant has maintained a representative institution in China
for two years or longer;
(2) the total assets of the applicant at the end of the year prior to
the application shall not be below US $ 20 billion; and
(3) there is a sound system for financial regulation and supervision
in the home country or region of the applicant.
Article 8
To establish an equity joint-venture bank or equity joint-venture
finance company, the applicant is subject to an the following conditions:
(1) each partner to the joint-venture is a financial institution;
(2) the foreign partner has a representative institution in China;
(3) the total assets of the foreign partner at the end of the year
prior to the application are not be below US $ 10 billion; and
(4) there is a sound system for financial regulation and supervision
in the home country or region of the applicant.
Article 9
The applicant for the establishment of a foreign bank or a foreign
finance company shall submit to the People's Bank of China a written
application together with the following documents:
(1) a letter of application specifying: the name of the foreign bank
or finance company to be set up, the registered capital and paid-up
capital, the intended business activities, etc.,
(2) a feasibility study;
(3) the articles of association of the intended foreign bank or
finance company;
(4) a photocopy of the business license issued by the relevant
regulatory authorities of the country or region in which the applicant is
incorporated;
(5) the annual reports of the applicant for the last three years; and
(6) other documents required by the People's Bank of China.
Article 10
To establish a foreign bank branch, the head office of the foreign
bank shall submit to the People's Bank of China a written application
together with the following documents:
(1) the application signed by the legal representative specifying: the
name of the branch to be set up by the foreign bank, the amount of working
capital free from repayment allocated by the parent company, the intended
business activities, etc.;
(2) a photocopy of the business license issued by the relevant
regulatory authorities of the country or region in which the applicant is
incorporated;
(3) the annual reports of the applicant for the last three years; and
(4) other documents required by the People's Bank of China.
Article 11
To establish an equity joint-venture bank or a finance company, the
partners to the equity joint-venture shall submit to the People's Bank of
China a jointly written application together with the following documents:
(1) the application for the establishment of an equity joint-venture
bank or a finance company specifying: the name of the intended equity
joint-venture bank or finance company to be set up, the names of all the
partners to the joint-venture, the amount of the registered capital and
paid-up capital, the proportion of the capital contributions of all
parties to the joint-venture, the intended business activities, etc.;
(2) a feasibility study;
(3) the contract for the equity joint-venture and the Articles of
Association of the joint venture bank or finance company to be set up;
(4) a photocopy of the business licenses issued by the relevant
regulatory authorities of the country or region in which the applicants
are incorporated;
(5) the annual reports of the applicants for the last three years; and
(6) other documents required by the People's Bank of China.
Article 12
Except the annual reports, all documents required in Article 9,
Article 10 and Article 11 hereof, if written in a foreign language, shall
have a Chinese translation attached.
Article 13
The applicant shall be given a formal application form when the
People's Bank of China approves the application for the establishment of a
financial institution with foreign capital after preliminary examination.
The application shall be considered rejected if the applicant fails to
receive the formal application form within 90 days from the date of
application.
Article 14
The applicant shall, within 60 days from the date of receiving the
formal application form, present to the People's Bank of China the
completed form and the following documents for ratification:
(1) a list of the key executives of the intended financial institution
with foreign capital and their resumes;
(2) a power of attorney granted to the key executive officer of the
intended financial institution with foreign capital;
(3) in case of applying for setting up a foreign bank branch, a letter
of guarantee from the head office specifying the responsibility for the
tax and debt obligations incurred by the foreign bank branch; and
(4) other documents required by the People's Bank of China.
Article 15
The financial institution with foreign capital shall, within 30 days
from the date of receiving the approval document of the People's Bank of
China, raise and transfer to China the required paid-up capital or working
capital, and then register with the industry and commerce administration
authorities in accordance with law after the transferred capital is
verified by a certified public accountant registered in China. It shall
also register with a taxation office, in accordance with law, within 30
days from the date when it enters into operation. Article 16
The financial institution with foreign capital shall apply to the
State Administration of Exchange Control for the issuance of the Foreign
Exchange Operation License within 30 days from the date of approval by the
People's Bank of China.
Chapter III Scope of Business
Article 17
Subject to approval by the People's Bank of China, a foreign bank, a
foreign bank branch or an equity joint-venture bank shall be allowed to
conduct some or all of the following business activities:
(1) foreign currency deposit-taking;
(2) foreign currency lending;
(3) foreign currency bill-discounting;
(4) approved foreign exchange investment;
(5) foreign exchange remittance;
(6) foreign exchange guarantee;
(7) import and export settlement;
(8) foreign currency dealing and brokerage;
(9) exchange of foreign currencies and bills denominated in foreign
currency;
(10) foreign currency credit card payment;
(11) custody and safe-deposit box service;
(12) credit verification and consultation; and
(13) approved business activities in domestic currency and other
foreign currencies.
Article 18
Subject to approval by the People's Bank of China, a foreign finance
company or an equity joint-venture finance company shall be allowed to
conduct some or all of the following business activities;
(1) foreign currency deposit of US $ 100,000 in minimum for each
deposit with a maturity of three months or longer;
(2) foreign currency lending;
(3) foreign currency bill-discounting;
(4) approved foreign exchange investment;
(5) foreign exchange guarantee;
(6) foreign currency dealing and brokerage;
(7) credit verification and consultation;
(8) foreign exchange trust business; and
(9) approved business activities in domestic currency and other
foreign currencies.
Article 19
The foreign currency deposit-taking specified in this chapter refers
to the following deposits denominated in foreign currencies:
(1) inter-bank deposits both in China and abroad;
(2) deposits taken from the non-bank clients located outside China;
(3) deposits taken from foreigners in China;
(4) deposits taken from overseas Chinese and compatriots from Hong
Kong, Macao, and Taiwan;
(5) deposits taken from enterprises with foreign investment in China;
(6) re-deposits as occurred as a result of lending by financial
institutions with foreign capital to non-enterprises with foreign
investment; and
(7) other approved foreign exchange deposits.
Article 20
The foreign exchange remittance specified in this chapter refers to
the inward remittance from abroad and the outward remittance by
enterprises with foreign investment, foreigners, overseas Chinese and
compatriots form Hong Kong, Macao, and Taiwan on the mainland of China.
Article 21
The import and export settlement specified in this chapter refers to
such business as the import and export settlement of enterprises with
foreign investment, the export settlement of approved non-enterprises
with foreign investment, and the import settlement occurred as a result of
their lending conducted by foreign banks, foreign bank branches, and
equity joint-venture banks.
Chapter IV Supervision and Administration
Article 22
The deposit and lending rates as well as various types of fees charged
by a financial institution with foreign capital shall be determined by
itself in accordance with the relevant rules and regulations of the
People's Bank of China.
Article 23
To conduct deposit-taking business, a financial institution with
foreign capital is required to deposit reserves with a local branch of the
People's Bank of China. The reserve ratio shall be determined, and
adjusted when necessary, by the People's Bank of China. The deposit
reserves are free of interest.
Article 24
Thirty percent of the working capital of a foreign bank branch shall
be maintained in the form of interest-bearing assets designated by the
People's Bank of China, including the deposits held with the banks
designated by the People's Bank of China.
Article 25
The total assets of a foreign bank, an equity joint-venture bank, a
foreign finance company, or a equity joint-venture finance company shall
not exceed twenty times the sum of its paid-up capital plus reserves.
Article 26
The loans granted to an enterprise and its related enterprises by a
foreign bank, an equity joint-venture bank, a foreign finance company, or
an equity joint-venture finance company shall not exceed thirty percent of
the sum of its paid-up capital plus reserves, except those specially
approved by the People's Bank of China.
Article 27
The gross investment of a foreign bank, an equity joint-venture bank,
a foreign finance company, or an equity joint-venture finance company
shall not exceed thirty percent of the sum of its paid-up capital plus
reserves, with the exception of that made to a financial institution and
approved by the People's Bank of China.
Article 28
The fixed assets maintained by a foreign bank, an equity joint-venture
bank, a foreign finance company, or an equity joint-venture finance
company shall not exceed forty percent of the sum of its paid-up capital
plus reserves.
Article 29
A financial institution with foreign capital shall ensure the
liquidity of its assets. The specific requirements to financial
institutions with foreign capital on their assets, liquidity shall be made
separately by the People's Bank of China.
Article 30
Deposits taken from within the territory of the People's Republic of
China by a financial institution with foreign capital shall not exceed
forty percent of its total assets.
Article 31
A financial institution with foreign capital shall make provisions
fund for non-performing (bad) assets in accordance with the relevant
procedures as stipulated by the State.
Article 32
A foreign bank, an equity joint-venture bank, a foreign finance
company, or an equity joint-venture finance company whose paid-up capital
is below the level of its registered capital, shall supplement the paid-up
capital by transferring twenty-five percent of its post-tax profit each
year until the sum of the paid-up capital plus reserves equals to the
registered capital.
Article 33
A financial institution with foreign capital shall employ at least one
Chinese citizen as its senior executive.
Article 34
A financial institution with foreign capital shall employ certified
public accountants registered in China. Such employment shall be subject
to the confirmation by the relevant local branch of the People's Bank of
China.
Article 35
A financial institution with foreign capital shall gain approval from
the People's Bank of China and conduct the related registration with an
industry and commerce administration department in accordance with the law
in any of the following cases:
(1) establishment of an affiliate;
(2) adjustment or transfer of registered capital, increase or decrease
of working capital;
(3) change of the institution's name or business address; and
(4) replacement of senior executives.
Article 36
A financial institution with foreign capital shall submit to the
People's Bank of China and its related branches financial statements and
other relevant data.
Article 37
The People's Bank of China and its branches have the right to examine
and audit the operational management and financial situation of a
financial institution with foreign capital.
Chapter V Dissolution and Liquidation
Article 38
In case of a self-termination of its business activities, a financial
institution with foreign capital shall submit a written application to the
People's Bank of China 30 days before the termination, and will be
dissolved and liquidated after the Bank's examination and approval.
Article 39
The People's Bank of China may order a financial institution with
foreign capital which is unable to meet its liabilities to cease operation
and make repayment within a limited period of time. If it has recovered
redeemability and wants to resume business within the time limit, it shall
apply to the People's Bank of China for resuming business; if it fails to
recover redeemability beyond the time limit, it shall enter into
liquidation.
Article 40
In case of the termination of a financial institution with foreign
capital due to dissolution, cancellation under the law or because of the
declaration of bankruptcy, matters concerning its liquidation shall be
handled under the stipulations of relevant Chinese laws and regulations.
Article 41
Upon the completion of liquidation, a financial institution with
foreign capital shall reregister itself at the original registration
agency within the legal time limit.
Chapter VI Penalties
Article 42
In case of a financial institution with foreign capital established in
violation of the stipulations of Chapter II hereof and without approval,
the People's Bank of China shall outlaw it, confiscate its illegal gains
and may, together, fine an amount of foreign exchange equivalent to RMB
50,000-100,000 yuan.
Article 43
In case of a financial institution with foreign capital conduction the
business activities beyond its approved business scope and in violation of
the stipulations of Chapter III hereof, the People's Bank of China or its
relevant branch institutions shall order it to cease those business
activities which are beyond its approved business scope and confiscate its
illegal receipts from the non-approved business activities, and a penalty
of an amount of foreign currency equivalent to RMB 10,000-50,000 yuan
shall also be imposed.
Article 44
In case of a financial institution with foreign capital conducting the
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民事诉讼中的自认及其效力
徐 新
一、问题的提出
民事诉讼中的自认,是指当事人一方对他方所主张的不利于己的事实承认其为真实的意思表示。广义上的自认还包括对他方所提诉讼请求的承认,但一般均是指对事实的承认。自认是民事诉讼中一项重要的制度,因而多数国家对其皆有较为详细的规定。就其性质而言,无论在英美法系还是大陆法系,诉讼中的自认均具有证据法则的性质,亦即具有免除对方当事人举证责任的作用,其法定效力在于可以限制争执以及举证的范围。我国现行的民事诉讼法对自认制度没有作明确的、详细的正面规定,只在最高人民法院颁行的《关于适用<中华人民共和国民事诉讼法>若干问题的意见》的第75条以司法解释的形式对自认制度作了确认,即一方当事人对另一方当事人陈述的案件事实和提出的诉讼请求明确表示承认的,当事人无须举证。这一规定对弥补我国民事诉讼证据制度的缺陷有一定的积极意义,但是,其无法涵盖自认制度的丰富内涵,无法满足民事诉讼实践的客观需要,也因此在司法实践过程中出现了许多困境和问题。
第一,立法滞后于社会主义市场经济所需要的私权理念。根据我国民事诉讼法的有关规定,当事人的自认对人民法院没有任何拘束力。因为依据民事诉讼法的有关规定,自认乃是当事人陈述的一部分,对受诉法院来说,其仅是一种证据材料,与当事人的其他陈述没有什么区别。这样,人民法院完全可以抛开当事人的自认,而以其他证据作为认定案件事实的根据。此外,根据民事诉讼法第六十四条第二款的规定,受诉法院完全可以不予考虑当事人的自认而自行进行调查取证,并以其所调查收集的证据作为认定事实的根据来对案件作出裁判。笔者认为,只要一方当事人作出自认,即可免除对方当事人的举证责任,法院并以该自认之事实作为裁判的部分或者全部基础。否则,对诉讼效率和经济性的提高构成了影响,也和民事诉讼的私权本质背道而驰。
第二,滞后于司法实践,从而使得实践中的诸多问题无法处理。比如,在审判实践中,大量的民事经济案件当事人委托诉讼代理人后,往往不出庭参加诉讼。开庭审理时,对案件事实的陈述和自认、法庭调查中对证据的质证、法庭辩论等均由诉讼代理人进行,在审判过程中,时常遇到诉讼代理人就不利于被代理人的事实进行自认的问题。由于我国现行的民事诉讼法尚未就诉讼代理人对事实自认的问题作出规定,因而在审判实践中,如何认定其法律效力就成为一个非常复杂和困惑的问题。
第三,影响我国审判之效率和涉外诉讼的有效进行。民事诉讼迟延一直是我国司法实践领域存在的一个困境。在影响我国审判效率的诸多因素中,诉讼制度的不完善是其中的重要一环。自认制度由来已久,近代以来已经许多国家运用、发展和完善,其合理性程度是显而易见的,将其引入到我国的诉讼证据制度中去,亦能发挥其自身的功能,促进我国审判效率的提高以及程序公正、诉讼经济等价值目标的实现。同时可以预见,我国立法的滞后势必会对我国涉外诉讼产生不利的影响。
有鉴于此,本文拟对民事诉讼中的自认之内涵及其效力问题作一探讨,以期对我国的自认制度的建立和完善有所裨益。
二、不同主体的自认及其效力
首先需要明确的是,自认效力的产生必须符合一定的先决条件,即作出自认的主体必须具备相应的民事诉讼行为能力,享有在诉讼上处置的权能。在现实生活中,未成年人、精神病人等一些特殊主体在诉讼过程中作出某些承认,在诉讼上不应具有证明效力,只有其法定代理人的诉讼行为才是合法有效的。
1.当事人的自认及其效力
基于民事诉讼的私权性质,当事人一方有权对他方提出的对自己不利的事实予以承认。一经当事人自认即发生无庸举证的效力,他方当事人因此就该项事实的主张免除举证之责任。
自认的效力产生于自认规则,在当事人作出自认后,对法院亦发生拘束力,即法院不得对自认的事实再行判断,并以此作为断案的依据。但是,由于法院对自认事实的真实性不作判断,那么,若出现自认之事实与众所周知的事实或其他显著之事实相矛盾时,自认之事实是否依然对法院产生拘束力?笔者认为,法院解决民事纠纷应依当事人的意愿进行,当事人对该事实既然存在相一致的认识,就表明当事人双方不希望法院对该事实的真实性等再作判定,因此,即便该自认的事实与众所周知的事实相违背,也应对法院产生拘束力。自认对法院的效力适用不仅及于第一审法院,而且还对其上诉审法院产生拘束力,自认的效力还体现在对当事人的拘束力,即自认一经合法作出,一般不得撤回或变更为抗辩主张。
2.诉讼代理人的自认及其效力
我国民事诉讼法规定,诉讼代理人代为承认、放弃、变更诉讼请求,进行和解,提起反诉和上诉,需要有委托人的特别授权。可见,从我国当事人自认制度的立法精神上来看,诉讼代理人只有在特别授权的情况下才有代为承认诉讼请求的权利,而没有对案件事实代为承认的权利。其中的意旨在于,当事人的陈述中所包含的对对方当事人事实主张的自认,属于当事人本人独自享有的权利而不授予诉讼代理人。这显然与设立代理权的法意不符,也不能适应我国司法审判的需要。在司法实践中,法院一般基于理性的考虑,赋予诉讼代理人代为自认案件事实而不为被代理人所否认的行为以证据上的证明力,因此,事实上,这也造成了司法审判于法无据的局面。但是,若诉讼代理人的自认并非出自当事人真实的意思表示?或者有证据证明代理人作出的自认与真实不符,而且其自认是由于错误而发生时,应允许当事人撤回或变更,但是,另一方面这种行为会对当事人的诉讼利益产生影响,同时也使简明的诉讼复杂化,因此,各国对这种撤回或变更的时间和举证责任等都施以严格的限制。
3.共同诉讼中的一人自认及其效力
共同诉讼中的自认问题主要涉及到其中一人的自认其效力是否及于共同诉讼中的主体。我国民事诉讼法第五十三条第二款规定,“共同诉讼的一方当事人对诉讼标的有共同权利义务的,其中一人的诉讼行为经其他共同诉讼人承认,对其他共同诉讼人发生效力;对诉讼标的没有共同权利义务的,其中一人的诉讼行为对其他共同诉讼人不发生效力。”据此可以认为,若诉讼行为中包含自认,则在必要共同诉讼中,其中一人的自认行为只有经其他人的认可,该自认行为方能对其他人发生效力,若其他人并未认可,则该自认行为对其他人自无效力可言;在普通共同诉讼中,其中一人的自认,对其他人始终不产生效力。可见,我国的立法旨意在于以其他共同诉讼人的主观认可为产生效力之要件,旨意与台湾地区的做法有所不同。台湾的立法例表明,共同诉讼中一人的自认行为若对其他共同诉讼人产生不利益,则对其他共同诉讼人不产生效力。由此可见,台湾地区关于自认制度的旨意在于以客观上产生利益之结果作为产生效力的要件,这似乎亦可作为我国自认制度完善之借鉴因素。
三、自认效力适用之限制
从理论的角度看,对自认的效力,应基于普通的情况下来确定其适用的规则范畴,从而作为一种证明方式,可以产生免除当事人举证责任之结果。但是,在特殊的情况下,或者出于诉讼政策的考虑,在法律上应对自认的效力施以限制,或者作为自认规则的一种例外。
1.诉讼外自认与自认
我国台湾地区学者李学灯先生认为,诉讼外的自认,仅为证据的一种,并无诉讼上自认的效力。该项自认即便与他方主张的事实相符,仅可作为法院依自由心证认定事实的资料,亦即其证据力如何,应由法院予以判断。他方不得援用此项自认为证据,并非因有此项自认而无庸举证。在其他诉讼事件中所作出的诉讼上的自认,而在本诉讼事件中,自应作为诉讼外的自认。我国建立和完善自认制度过程中也应明确规定诉讼外的自认不产生自认效力,可以作为一般证据使用,具体证据力由法官审酌判定。
2.司法认知的事实或推论事实与自认
对于应当予以司法认知的众所周知的事实和自然规律及定理、或者及于推论而得出的另一事实,日本学者兼子一等认为,自认应就具体事实而言,而对于法律判断或经验法则,即使双方当事人的陈述相一致也不得产生约束法院的效力。李学灯先生也认为,对于诸如自认的标的,基于经验法则,或依据显著事实,可以推定其为不可能的事实,也不应认为有发生自认的效力。我国的民事诉讼法对此并未作规定,在建立和完善自认制度的过程中,可以借鉴日本和台湾地区的做法,限定应予司法认知的显著事实不适用于自认。
3.和解、调解中的让步与自认
在和解、调解过程中,为求纠纷及早解决,当事人作出一些让步是必不可少的。若和解、调解生效,则无须详细讨论其中的让步对以后的影响;若和解、调解不成,那么当事人在和解、调解过程中作出的让步是否产生诉讼中自认之效力?因法律对此无明文规定,在司法实践过程中容易产生误解,当事人不敢轻易作出让步,这势必影响和解、调解之成立。事实上,和解与诉讼中的调解,以当事人相互作出让步,解决纠纷为目的,其与自认是显然有别的。因此,不宜赋予调解中的让步以自认之效力。