金融監理機關功能性組織調整之研究

The Study of Organization Restructure for Financial Supervisory Agency based on Functional Regulation

楊偉文(Way-Wen Yang)

《臺北大學法學論叢》 70期 (2009/06) Pp. 157-255

https://doi.org/10.6774/TULR.200906.0157

摘要

近年來，隨著金融法令管制的鬆綁，金融商品之界線日趨模糊，跨業大型金融集團興起，金融機構之業務範疇朝向多元化發展，爲因應金融市場創新的速度並強化金融監理之效能，先進國家不約而同地捨棄過往機構別的監理模式(institutional regulation)、嚴格分業管制的監理法規和以法規爲基礎的監理方法，從事金融監理機關監理模式之調整、監理法規和監理方法的革新。就金融產業先進國家金融法規和監理機關的監理模式變革觀察，金融法規的革新在於建構最適的跨業經營模式及促進金融創新，規範跨業經營興起的金融集團和其所生的風險集中(risk concentration)及可能的骨牌風險(risk contagion)效應，防制金融犯罪及維護投資和消費者之權益；金融監理機關監理模式的革新著重於對應前述金融市場結構性的改變及有效執行金融法規和監督風險多元的金融集團，在此背景下，以行爲別監理模式之「功能性監理」(functional regulation)成爲金融產業先進國家在進行金融監理機關組織調整之依循；惟觀察美國和英國在進行金融監理機關組織調整時對「功能性監理」之詮釋和監理模式卻有差異。
我國於1980年代起，政府爲推行金融自由化、國際化，陸續展開一連串組織、業務與監理上的金融改革措施，修正和制定的金融監理法規共有十七部，使原先以機構／行業別劃分的金融商品或服務區隔日趨模糊，金融機構亦積極透過跨業經營之方式進行業務整合，組織朝向大型化、集團化發展。爲對橫跨銀行、證券、期貨及保險業之金融集團進行有效監理，並提升監理效能，我國行政院金融監督管理委員會（金管會）於2004年7月1日成立，我國金融監理亦進入一元化之跨業合併監理模式。惟我國金管會成立之初，仍採銀行、證券、保險分業監理之組織架構，對當前金融產業跨業經營、金融商品跨領域組合之市場與商品結構，恐難作最有效率監理；爲追求金融監理效能，金管會組織法第30條也預留了該會四個業務局組織調整之空間。爲尋求金管會組織改採功能性分工之最適方式，實有必要瞭解國際金融監理機構監理原則之發展趨勢與世界金融發達國家金融監理體系之變革，審酌各國之差異點，作爲提出我國金管會功能性監理模式建置和內部組織調整規劃建議，以供未來訂定我國金管會組織架構改造的政策參酌依據。

關鍵字

金融監理 ； 功能性監理模式 ； 機構別監理模式 ； 審慎規範 ； 業務行爲規範

並列摘要

Recent years, in order to strengthen the effectiveness of the financial supervision and promote the speed of the innovation in financial markets, world financial leading countries have adopted functional regulation as the new method of financial supervision. However, there is a large variety in the interpretation of the core meaning of the functional regulation in the United States and United Kingdom.
In the Republic of China (ROC), the government has started to liberalize and internationalize its financial market to catch the development of the world market since 1980s. In total, there are seventeen laws and regulations have been enacted and revised in the names of financial reform. The said reform has deregulated the traditional strict business line among banking, securities and insurance industries and allowed the cross-sector consolidation. Big financial conglomerations have been emerged. Enormous financial products have been created. However, how to supervise such united financial markets and its accompanied market failures become the main concern of the ROC government. In 2004, a single financial regulator, the Financial Supervisory Commission (FSC), has been established by the enactment of its Organization Law. Nevertheless, FSC, though a single regulator, does not real function as a united regulator. The four main bureaus, Banking, Securities and Futures, Insurance, and Inspection Bureaus still follow the traditional institutional regulation approach to regulate the financial markets, instead of functional regulation. The study is trying to find out the best suitable functional approach for FSC.

並列關鍵字

financial supervision ； functional regulation ； institutional regulation ； prudential regulation ； business conduct regulation

參考文獻

金融基本資訊

Financial Basic Data

行政院金融監督管理委員會檢查金融機構業務要點

Executive Yuan, Financial Supervisory Commission, Regulation for the Examination of Financial Institutions Operation

行政院金融監督管理委員會檢查資料評等系統