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為進一(yi)步加強信(xin)(xin)托公(gong)(gong)司股權(quan)管理(li)，規(gui)范信(xin)(xin)托公(gong)(gong)司股東行(xing)為，促進信(xin)(xin)托公(gong)(gong)司完善(shan)公(gong)(gong)司治理(li)機制建設，近日，中國銀保監會(hui)制定了《信(xin)(xin)托公(gong)(gong)司股權(quan)管理(li)暫行(xing)辦(ban)法（征求意(yi)見(jian)(jian)稿）》（以(yi)下(xia)簡(jian)稱《暫行(xing)辦(ban)法》），面(mian)向社會(hui)公(gong)(gong)開征求意(yi)見(jian)(jian)，有關部門負(fu)責人(ren)就《暫行(xing)辦(ban)法》回(hui)答了記者(zhe)提問。

一、制定(ding)《暫行辦法》的背景是什么？

近年來，信(xin)(xin)托(tuo)(tuo)(tuo)(tuo)業(ye)(ye)股(gu)(gu)(gu)權(quan)管(guan)(guan)(guan)理(li)(li)(li)(li)(li)(li)(li)亂象導致部分信(xin)(xin)托(tuo)(tuo)(tuo)(tuo)公(gong)(gong)司風(feng)險(xian)(xian)事件頻發，也在一定(ding)程(cheng)度上阻(zu)礙(ai)了(le)(le)信(xin)(xin)托(tuo)(tuo)(tuo)(tuo)業(ye)(ye)轉型發展(zhan)。現(xian)行(xing)信(xin)(xin)托(tuo)(tuo)(tuo)(tuo)業(ye)(ye)監(jian)(jian)(jian)管(guan)(guan)(guan)規制體系(xi)中雖對信(xin)(xin)托(tuo)(tuo)(tuo)(tuo)公(gong)(gong)司股(gu)(gu)(gu)權(quan)管(guan)(guan)(guan)理(li)(li)(li)(li)(li)(li)(li)有(you)所(suo)規范，但(dan)隨著行(xing)業(ye)(ye)發展(zhan)變化(hua)，個(ge)別規定(ding)可(ke)操作性不強、存在監(jian)(jian)(jian)管(guan)(guan)(guan)漏洞等(deng)問題日漸顯現(xian)，給有(you)效(xiao)監(jian)(jian)(jian)管(guan)(guan)(guan)帶(dai)來不小(xiao)挑戰。2018年，原(yuan)銀(yin)監(jian)(jian)(jian)會發布(bu)《商(shang)業(ye)(ye)銀(yin)行(xing)股(gu)(gu)(gu)權(quan)管(guan)(guan)(guan)理(li)(li)(li)(li)(li)(li)(li)暫行(xing)辦法》（銀(yin)監(jian)(jian)(jian)會令2018年第(di)1號）后，信(xin)(xin)托(tuo)(tuo)(tuo)(tuo)公(gong)(gong)司作為參照適用機(ji)構，逐步加(jia)強股(gu)(gu)(gu)權(quan)穿透監(jian)(jian)(jian)管(guan)(guan)(guan)，強化(hua)主要股(gu)(gu)(gu)東(dong)管(guan)(guan)(guan)理(li)(li)(li)(li)(li)(li)(li)。整體而言，信(xin)(xin)托(tuo)(tuo)(tuo)(tuo)業(ye)(ye)股(gu)(gu)(gu)權(quan)監(jian)(jian)(jian)管(guan)(guan)(guan)工作較以(yi)往(wang)有(you)了(le)(le)較大完善(shan)。然而，考慮到(dao)信(xin)(xin)托(tuo)(tuo)(tuo)(tuo)業(ye)(ye)曾歷經多(duo)次清理(li)(li)(li)(li)(li)(li)(li)整頓，其股(gu)(gu)(gu)權(quan)管(guan)(guan)(guan)理(li)(li)(li)(li)(li)(li)(li)特征、風(feng)險(xian)(xian)特征、監(jian)(jian)(jian)督管(guan)(guan)(guan)理(li)(li)(li)(li)(li)(li)(li)體系(xi)與商(shang)業(ye)(ye)銀(yin)行(xing)差異較大等(deng)因素，一些股(gu)(gu)(gu)權(quan)管(guan)(guan)(guan)理(li)(li)(li)(li)(li)(li)(li)突(tu)出問題仍(reng)無(wu)法通過現(xian)行(xing)制度安排(pai)予(yu)以(yi)解決。因此(ci)，為彌(mi)補制度短板，借鑒(jian)國內監(jian)(jian)(jian)管(guan)(guan)(guan)實(shi)踐并結合信(xin)(xin)托(tuo)(tuo)(tuo)(tuo)業(ye)(ye)發展(zhan)實(shi)際(ji)，銀(yin)保監(jian)(jian)(jian)會研(yan)究起(qi)草(cao)了(le)(le)《暫行(xing)辦法》，以(yi)促進(jin)信(xin)(xin)托(tuo)(tuo)(tuo)(tuo)股(gu)(gu)(gu)權(quan)管(guan)(guan)(guan)理(li)(li)(li)(li)(li)(li)(li)亂象的(de)有(you)效(xiao)治理(li)(li)(li)(li)(li)(li)(li)，提升(sheng)信(xin)(xin)托(tuo)(tuo)(tuo)(tuo)業(ye)(ye)股(gu)(gu)(gu)權(quan)監(jian)(jian)(jian)管(guan)(guan)(guan)質效(xiao)。

二、《暫行(xing)辦法(fa)》的(de)主(zhu)要(yao)內容(rong)是什么？

《暫行(xing)(xing)(xing)(xing)辦法(fa)(fa)》共六章(zhang)七十八條(tiao)，除總則和(he)附則外，主要包(bao)括(kuo)(kuo)四方面內容。一(yi)是明確信(xin)托(tuo)(tuo)(tuo)公(gong)司(si)(si)股(gu)(gu)(gu)東(dong)責任。包(bao)括(kuo)(kuo)信(xin)托(tuo)(tuo)(tuo)公(gong)司(si)(si)股(gu)(gu)(gu)東(dong)資質條(tiao)件，以及(ji)股(gu)(gu)(gu)東(dong)在股(gu)(gu)(gu)權(quan)(quan)(quan)(quan)取得、股(gu)(gu)(gu)權(quan)(quan)(quan)(quan)持(chi)有、股(gu)(gu)(gu)權(quan)(quan)(quan)(quan)退出各(ge)個階段應(ying)(ying)承(cheng)擔的責任和(he)義(yi)務等(deng)(deng)。二(er)是明確信(xin)托(tuo)(tuo)(tuo)公(gong)司(si)(si)職責。包(bao)括(kuo)(kuo)信(xin)托(tuo)(tuo)(tuo)公(gong)司(si)(si)在股(gu)(gu)(gu)權(quan)(quan)(quan)(quan)變更期間(jian)應(ying)(ying)履行(xing)(xing)(xing)(xing)的職責、應(ying)(ying)承(cheng)擔的股(gu)(gu)(gu)權(quan)(quan)(quan)(quan)事務管(guan)理責任、應(ying)(ying)履行(xing)(xing)(xing)(xing)的股(gu)(gu)(gu)東(dong)行(xing)(xing)(xing)(xing)為管(guan)理職責等(deng)(deng)。三是加強對(dui)信(xin)托(tuo)(tuo)(tuo)公(gong)司(si)(si)股(gu)(gu)(gu)權(quan)(quan)(quan)(quan)的監督(du)管(guan)理。包(bao)括(kuo)(kuo)明確監管(guan)部門股(gu)(gu)(gu)權(quan)(quan)(quan)(quan)穿透監管(guan)措(cuo)施(shi)和(he)手段，對(dui)信(xin)托(tuo)(tuo)(tuo)公(gong)司(si)(si)股(gu)(gu)(gu)東(dong)或(huo)信(xin)托(tuo)(tuo)(tuo)公(gong)司(si)(si)股(gu)(gu)(gu)權(quan)(quan)(quan)(quan)管(guan)理違法(fa)(fa)違規行(xing)(xing)(xing)(xing)為可(ke)采取的監管(guan)措(cuo)施(shi)等(deng)(deng)。四是明晰法(fa)(fa)律(lv)責任。以《中華(hua)人(ren)民共和(he)國銀行(xing)(xing)(xing)(xing)業(ye)監督(du)管(guan)理法(fa)(fa)》《中華(hua)人(ren)民共和(he)國行(xing)(xing)(xing)(xing)政(zheng)許可(ke)法(fa)(fa)》為依據，規定信(xin)托(tuo)(tuo)(tuo)公(gong)司(si)(si)股(gu)(gu)(gu)東(dong)或(huo)信(xin)托(tuo)(tuo)(tuo)公(gong)司(si)(si)罰則等(deng)(deng)內容。

三、《暫行辦法》與《商業銀(yin)行股權管理暫行辦法》的關系(xi)？

《暫行(xing)辦法(fa)》充分借鑒了《商業(ye)(ye)銀行(xing)股(gu)(gu)(gu)權(quan)管(guan)(guan)(guan)(guan)理(li)暫行(xing)辦法(fa)》的良好制度實(shi)踐(jian)，沿用了其中(zhong)提出(chu)的“三(san)位一(yi)體(ti)(ti)”股(gu)(gu)(gu)權(quan)穿透(tou)監(jian)(jian)管(guan)(guan)(guan)(guan)框架、加(jia)強主要股(gu)(gu)(gu)東股(gu)(gu)(gu)權(quan)管(guan)(guan)(guan)(guan)理(li)、強化(hua)董事會股(gu)(gu)(gu)權(quan)事務(wu)管(guan)(guan)(guan)(guan)理(li)責(ze)任等重要制度安排，并均以(yi)《中(zhong)華人民共和國銀行(xing)業(ye)(ye)監(jian)(jian)督管(guan)(guan)(guan)(guan)理(li)法(fa)》等上位法(fa)為依據規范監(jian)(jian)管(guan)(guan)(guan)(guan)措施、罰(fa)則等內容(rong)。《暫行(xing)辦法(fa)》將“三(san)位一(yi)體(ti)(ti)”股(gu)(gu)(gu)權(quan)穿透(tou)監(jian)(jian)管(guan)(guan)(guan)(guan)框架擴展為“三(san)位一(yi)體(ti)(ti)”股(gu)(gu)(gu)權(quan)管(guan)(guan)(guan)(guan)理(li)體(ti)(ti)系，突出(chu)信(xin)托(tuo)公(gong)(gong)司股(gu)(gu)(gu)東、信(xin)托(tuo)公(gong)(gong)司、監(jian)(jian)管(guan)(guan)(guan)(guan)部門三(san)方主體(ti)(ti)從(cong)股(gu)(gu)(gu)權(quan)進入到退出(chu)各個(ge)階(jie)段的股(gu)(gu)(gu)權(quan)管(guan)(guan)(guan)(guan)理(li)職(zhi)責(ze)，更加(jia)貼合(he)信(xin)托(tuo)公(gong)(gong)司股(gu)(gu)(gu)權(quan)監(jian)(jian)管(guan)(guan)(guan)(guan)實(shi)際，突出(chu)信(xin)托(tuo)公(gong)(gong)司公(gong)(gong)司治理(li)機(ji)制要求(qiu)，力求(qiu)解決(jue)信(xin)托(tuo)業(ye)(ye)股(gu)(gu)(gu)權(quan)管(guan)(guan)(guan)(guan)理(li)突出(chu)問題(ti)。

四、《暫行辦(ban)法》對信托(tuo)公司(si)股東資(zi)質條(tiao)件的要(yao)求有哪些變化(hua)？

《暫(zan)行(xing)辦法》根據2018年(nian)4月人民銀(yin)行(xing)、銀(yin)保監會(hui)(hui)、證監會(hui)(hui)聯合發布(bu)的(de)《關于(yu)加強非金(jin)融(rong)企(qi)業投資金(jin)融(rong)機(ji)構監管的(de)指導意見》（銀(yin)發〔2018〕107號）要求，對擬成(cheng)為信托公司(si)控股(gu)股(gu)東的(de)非金(jin)融(rong)企(qi)業股(gu)東資質條(tiao)件進(jin)行(xing)了嚴格(ge)規范(fan)，同(tong)時，進(jin)一(yi)步落實(shi)持續改革開放國策，取消了境外(wai)(wai)金(jin)融(rong)機(ji)構入股(gu)信托公司(si)應具備的(de)“總資產不少于(yu)10億美(mei)元”的(de)數量(liang)型限制門檻要求，體(ti)現“內外(wai)(wai)一(yi)致”的(de)國民待遇(yu)原則。

《暫(zan)行辦(ban)法》發布后，對于信(xin)托(tuo)公司(si)(si)存在的股(gu)權管理(li)不符合《暫(zan)行辦(ban)法》要(yao)求的情形，銀保(bao)監會將及時出臺相關配(pei)套辦(ban)法，明(ming)確信(xin)托(tuo)公司(si)(si)整改的過(guo)渡(du)期安排等要(yao)求，推動信(xin)托(tuo)公司(si)(si)股(gu)權管理(li)逐步符合《暫(zan)行辦(ban)法》。

五、《暫行辦法》對金融(rong)產品持股(gu)有什么特別安排？

《暫行(xing)辦法(fa)》沿(yan)用(yong)了《商業銀行(xing)股(gu)(gu)權(quan)管(guan)(guan)理暫行(xing)辦法(fa)》相關規定，明確金(jin)(jin)融(rong)(rong)(rong)產(chan)(chan)品(pin)可(ke)以持(chi)有上市信(xin)托(tuo)(tuo)(tuo)公(gong)(gong)司(si)股(gu)(gu)份(fen)，但單一(yi)投資人、發行(xing)人或(huo)管(guan)(guan)理人及其(qi)實(shi)際控(kong)(kong)(kong)制(zhi)人、關聯(lian)方、一(yi)致行(xing)動(dong)人控(kong)(kong)(kong)制(zhi)的(de)金(jin)(jin)融(rong)(rong)(rong)產(chan)(chan)品(pin)持(chi)有同一(yi)信(xin)托(tuo)(tuo)(tuo)公(gong)(gong)司(si)股(gu)(gu)份(fen)合計(ji)不(bu)得(de)超過(guo)該(gai)信(xin)托(tuo)(tuo)(tuo)公(gong)(gong)司(si)股(gu)(gu)份(fen)總額的(de)百分(fen)之五。信(xin)托(tuo)(tuo)(tuo)公(gong)(gong)司(si)主(zhu)要股(gu)(gu)東不(bu)得(de)以發行(xing)、管(guan)(guan)理或(huo)通過(guo)其(qi)他手段控(kong)(kong)(kong)制(zhi)的(de)金(jin)(jin)融(rong)(rong)(rong)產(chan)(chan)品(pin)持(chi)有同一(yi)信(xin)托(tuo)(tuo)(tuo)公(gong)(gong)司(si)股(gu)(gu)份(fen)。同時，考慮到金(jin)(jin)融(rong)(rong)(rong)產(chan)(chan)品(pin)本身不(bu)具有民(min)事主(zhu)體應具有的(de)權(quan)利能力，無(wu)法(fa)有效履行(xing)股(gu)(gu)東權(quan)利義(yi)務和責任，且行(xing)業內由金(jin)(jin)融(rong)(rong)(rong)產(chan)(chan)品(pin)實(shi)際控(kong)(kong)(kong)制(zhi)的(de)信(xin)托(tuo)(tuo)(tuo)公(gong)(gong)司(si)在公(gong)(gong)司(si)治理方面暴露了問題(ti)與不(bu)足，《暫行(xing)辦法(fa)》要求投資人的(de)控(kong)(kong)(kong)股(gu)(gu)股(gu)(gu)東、實(shi)際控(kong)(kong)(kong)制(zhi)人為金(jin)(jin)融(rong)(rong)(rong)產(chan)(chan)品(pin)的(de)，該(gai)投資人不(bu)得(de)為信(xin)托(tuo)(tuo)(tuo)公(gong)(gong)司(si)的(de)主(zhu)要股(gu)(gu)東。

六(liu)、《暫行辦法》如(ru)何(he)加強股權信息管理？

股(gu)(gu)(gu)(gu)權信(xin)息不(bu)對(dui)稱嚴重影響信(xin)托(tuo)(tuo)(tuo)公(gong)司(si)監管質(zhi)效。為此，《暫行辦法(fa)》以制度安排明確(que)股(gu)(gu)(gu)(gu)權信(xin)息變(bian)(bian)(bian)化(hua)(hua)(hua)(hua)的報告主(zhu)體、路徑與(yu)時限(xian)要(yao)(yao)求。主(zhu)要(yao)(yao)包括(kuo)以下情(qing)(qing)形(xing)：一是可(ke)能影響股(gu)(gu)(gu)(gu)東(dong)(dong)(dong)資質(zhi)條件變(bian)(bian)(bian)化(hua)(hua)(hua)(hua)或導致股(gu)(gu)(gu)(gu)東(dong)(dong)(dong)所持信(xin)托(tuo)(tuo)(tuo)公(gong)司(si)股(gu)(gu)(gu)(gu)權發生(sheng)(sheng)變(bian)(bian)(bian)化(hua)(hua)(hua)(hua)的事(shi)項(xiang)(xiang)。二(er)是主(zhu)要(yao)(yao)股(gu)(gu)(gu)(gu)東(dong)(dong)(dong)及其控(kong)股(gu)(gu)(gu)(gu)股(gu)(gu)(gu)(gu)東(dong)(dong)(dong)、實際控(kong)制人(ren)(ren)出現(xian)負面清單情(qing)(qing)形(xing)。三是主(zhu)要(yao)(yao)股(gu)(gu)(gu)(gu)東(dong)(dong)(dong)的控(kong)股(gu)(gu)(gu)(gu)股(gu)(gu)(gu)(gu)東(dong)(dong)(dong)、實際控(kong)制人(ren)(ren)發生(sheng)(sheng)變(bian)(bian)(bian)化(hua)(hua)(hua)(hua)。報告主(zhu)體、路徑、時限(xian)要(yao)(yao)求分為三類：一是信(xin)托(tuo)(tuo)(tuo)公(gong)司(si)股(gu)(gu)(gu)(gu)東(dong)(dong)(dong)或主(zhu)要(yao)(yao)股(gu)(gu)(gu)(gu)東(dong)(dong)(dong)于發生(sheng)(sheng)有關情(qing)(qing)形(xing)后于十五日(ri)內(nei)書面通知信(xin)托(tuo)(tuo)(tuo)公(gong)司(si)并根據要(yao)(yao)求提供有關材料。二(er)是信(xin)托(tuo)(tuo)(tuo)公(gong)司(si)就(jiu)有關事(shi)項(xiang)(xiang)以半年報、年報形(xing)式(shi)進(jin)行公(gong)開(kai)披露。三是信(xin)托(tuo)(tuo)(tuo)公(gong)司(si)就(jiu)股(gu)(gu)(gu)(gu)權信(xin)息變(bian)(bian)(bian)化(hua)(hua)(hua)(hua)情(qing)(qing)況自知悉之日(ri)起十日(ri)內(nei)向監管部門(men)書面報告。

七、《暫行辦法》如(ru)何(he)加強(qiang)關聯交易管(guan)理？

加強關(guan)聯(lian)交(jiao)(jiao)易(yi)(yi)(yi)管控一直(zhi)是信(xin)托公(gong)司(si)(si)股權監管重(zhong)點。《暫行辦(ban)法(fa)》強化監管部門對信(xin)托公(gong)司(si)(si)關(guan)聯(lian)交(jiao)(jiao)易(yi)(yi)(yi)的總體要求；明(ming)確(que)信(xin)托公(gong)司(si)(si)關(guan)聯(lian)交(jiao)(jiao)易(yi)(yi)(yi)分類及信(xin)托公(gong)司(si)(si)按照穿透原則(ze)和實質重(zhong)于形式(shi)原則(ze)加強關(guan)聯(lian)交(jiao)(jiao)易(yi)(yi)(yi)認(ren)定和關(guan)聯(lian)交(jiao)(jiao)易(yi)(yi)(yi)資金來源與運用的雙向(xiang)核查的要求；明(ming)確(que)信(xin)托公(gong)司(si)(si)建立關(guan)聯(lian)方名單管理制，完善(shan)關(guan)聯(lian)交(jiao)(jiao)易(yi)(yi)(yi)內控機(ji)制安(an)排等。