近代中国银行监管体系探析——基于政府与银行公会的视角

《财经研究》 2021年47卷第1期 页码：124 - 134，152  online：2020年12月30日

近代中国银行监管体系探析——基于政府与银行公会的视角

A Study of Banking Supervision System in Modern China: Based on the Relationship of Government and Bank Guild

作者（中）：兰日旭1, 李昆2

作者（英）：Lan Rixu1, Li Kun2

作者单位：1.中央财经大学 经济学院，北京 100081 2.中央财经大学 金融学院，北京 100081

摘要：金融是整个经济的核心，是经济运行的血脉，对促进经济发展、防范实体经济危机发挥着重要作用。从中国通商银行成立开始，近代中国的银行监管体系虽然经历了一个由初创到不断增补的过程，但其监管效果较为有限。在监管机构方面，从晚清时期的度支部，到北洋政府的财政部，再到南京国民政府时期的金融监理局和中央银行，监管专业化和精细化经历了长足进步，但风险防控目标受政府意愿影响较大，监管效果难有保证。在监管法律方面，法律体系整体上得到逐步改善，但由于强制力较差，监管效果不佳。由于监管体系未能尽如人意，商业银行只能内外兼修以应对风险挑战，除了加强自身风险管理建设外，特别加强了银行公会的建设。随着银行公会的建立和渐趋强大，在近代中国早期薄弱的政府监管体系下起到了重要的监督和管理作用，在外部甚至主导了整个银行业的监管，并推动了政府监管的进步。南京国民政府成立后，由于银行官办化，政府对银行业的监管力度渐趋加强，整个监管体系逐步纳入政府主导之中，银行公会的监管作用渐趋弱化。近代中国银行监管呈现由点到面、由浅入深、曲折发展的过程，其间银行公会发挥了至关重要的作用，政府监管虽然整体上效果有限，但仍对金融稳定起到了一定作用，也为后续发展奠定了基础。

关键词：近代中国; 商业银行; 监管体系; 银行公会

Summary: Finance is the core of the entire economy and plays a vital role in the smooth operation of the economy. Therefore, this paper attempts to start from the regulatory agencies, regulatory laws and regulations to reveal why modern Chinese banks chose to take bank self-control and industrial organizations as the main starting points of risk prevention. Through the analysis of the changes of modern banking supervision system, this paper sorts out and summarizes the experience of risk prevention and control of modern banks, so as to provide a mirror for the current financial risk prevention. The study finds that, since the establishment of China Merchants Bank, although the supervision system has gone through a process from start-up to continuous supplementation, its supervision effect was relatively limited. In terms of supervision agencies, from the branch of the late Qing Dynasty to the Ministry of Finance of the Beiyang Government, then to the Financial Supervision Bureau and the Central Bank of the Nanjing National Government, the professionalization and refinement of supervision has experienced great progress. However, subject to the government’s guidance, its risk prevention and control objectives were greatly affected by the government’s will, and the supervision effect was difficult to guarantee. In terms of supervision laws, the overall legal system was gradually improved, but due to poor coercive power, the supervision effect was poor. Due to the unsatisfactory supervision system, commercial banks not only strengthened their own risk management construction, but also strengthened the construction of Bank Guild to deal with internal and external risks. With the establishment and strengthening of Bank Guild, it played an important role in supervision and management under the early weak government supervision system in modern China, and even led the supervision of the entire banking industry from the outside, and promoted the progress of government supervision. After the establishment of the Nanjing National Government, due to the officialization of banks, the government’s supervision of the banking industry continued to be strengthened. The entire supervisory system was gradually incorporated into the government’s leadership, and the supervisory role of Bank Guild was gradually weakened.The contribution of this paper is mainly reflected in two aspects: Firstly, based on the relationship of government and Bank Guild, this paper explores the changes in the banking supervision system in modern China, and the relationship between government supervision and Bank Guild, sorting out the characteristics of the changes in the banking supervision system, as well as filling in the blank of relevant banking supervision system research. Secondly, we should learn from the past and learn from the experience and lessons in the changes of modern supervision system. The first is to clarify the supervisory body and maintain independent supervision; the second is to refine the system and strengthen the mandatory binding force; the third is to maintain the independence of the banking self-regulatory organization.

Key words: modern China; commercial banks; supervision system; Bank Guild

DOI：10.16538/j.cnki.jfe.20200815.202

收稿日期：2020-5-20

基金项目：国家社会科学基金重大项目“中国近代金融市场发展与运行研究”（16ZDA133）

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