上海檢察機關發布2019年度金融檢察白皮書
警惕非法金融借創新概念迷惑投資人
圖一:2015年至2019年上海檢察機關金融犯罪案件情況
圖二:2014年至2019年上海檢察機關受理非法集資案件情況
近日(ri),上海(hai)檢(jian)察(cha)機關發布2019年(nian)度金(jin)融(rong)(rong)檢(jian)察(cha)白皮書,對(dui)當前金(jin)融(rong)(rong)犯罪案件進行(xing)梳理(li)分(fen)析,梳理(li)金(jin)融(rong)(rong)違法(fa)犯罪活(huo)動的原因、特點(dian)和(he)發展(zhan)趨(qu)勢,立(li)足檢(jian)察(cha)職(zhi)能提(ti)出防(fang)范(fan)化(hua)解金(jin)融(rong)(rong)風險的對(dui)策建議(yi),以期進一步強化(hua)打(da)擊金(jin)融(rong)(rong)犯罪、防(fang)范(fan)金(jin)融(rong)(rong)風險,維護金(jin)融(rong)(rong)安(an)全。
金融犯罪案件基本情況和特點
2019年,上(shang)海市檢察(cha)機關(guan)共(gong)受(shou)理(li)金融(rong)犯(fan)(fan)罪(zui)(zui)(zui)(zui)審(shen)查(cha)逮捕案(an)件(jian)1772件(jian)3065人,批準逮捕2605人。受(shou)理(li)金融(rong)犯(fan)(fan)罪(zui)(zui)(zui)(zui)審(shen)查(cha)起(qi)訴案(an)件(jian)2063件(jian)4228人,案(an)件(jian)共(gong)涉及7類31個罪(zui)(zui)(zui)(zui)名,包括金融(rong)詐騙(pian)類犯(fan)(fan)罪(zui)(zui)(zui)(zui)460件(jian)738人,破壞金融(rong)管(guan)理(li)秩(zhi)序(xu)(xu)類犯(fan)(fan)罪(zui)(zui)(zui)(zui)1489件(jian)3108人,妨害(hai)對公司、企業管(guan)理(li)秩(zhi)序(xu)(xu)類犯(fan)(fan)罪(zui)(zui)(zui)(zui)6件(jian)19人,擾(rao)亂市場秩(zhi)序(xu)(xu)類犯(fan)(fan)罪(zui)(zui)(zui)(zui)80件(jian)320人,金融(rong)從(cong)業人員(yuan)犯(fan)(fan)罪(zui)(zui)(zui)(zui)28件(jian)43人(參見(jian)圖一)。案(an)件(jian)呈現出以下特點:
非(fei)法(fa)(fa)集(ji)(ji)資(zi)(zi)(zi)(zi)犯(fan)(fan)罪案(an)件(jian)持續高發,社(she)會危害嚴重。一是(shi)(shi)非(fei)法(fa)(fa)集(ji)(ji)資(zi)(zi)(zi)(zi)類案(an)件(jian)大(da)(da)、要案(an)頻發。2019年(nian),上海市檢察機關受(shou)理非(fei)法(fa)(fa)吸收公(gong)(gong)(gong)眾存款(kuan)審查起訴案(an)件(jian)1407件(jian)2929人(ren),集(ji)(ji)資(zi)(zi)(zi)(zi)詐騙審查起訴案(an)件(jian)136件(jian)281人(ren)(參見圖二),涉及投資(zi)(zi)(zi)(zi)人(ren)眾多,涉案(an)金(jin)額(e)巨(ju)大(da)(da)。二是(shi)(shi)“獲(huo)客”手(shou)(shou)段更趨多元。除了傳(chuan)(chuan)(chuan)(chuan)統的(de)線下宣(xuan)(xuan)傳(chuan)(chuan)(chuan)(chuan)、口口相傳(chuan)(chuan)(chuan)(chuan)、網絡(luo)廣告等方法(fa)(fa)外,不法(fa)(fa)分子利用技術手(shou)(shou)段非(fei)法(fa)(fa)獲(huo)取公(gong)(gong)(gong)民(min)個(ge)(ge)人(ren)信息,再向(xiang)其進行宣(xuan)(xuan)傳(chuan)(chuan)(chuan)(chuan)。如涉案(an)某公(gong)(gong)(gong)司(si)技術部通過自制含有欺詐內容(rong)的(de)釣魚網頁,在搜索網站上進行競價排名,誘(you)使(shi)客戶填寫(xie)姓(xing)名、通信通訊(xun)聯(lian)系(xi)(xi)方式,非(fei)法(fa)(fa)獲(huo)取公(gong)(gong)(gong)民(min)個(ge)(ge)人(ren)信息后,導入(ru)電話呼(hu)叫系(xi)(xi)統,業(ye)務員(yuan)直接在該系(xi)(xi)統內聯(lian)系(xi)(xi)被害人(ren)。三是(shi)(shi)金(jin)融廣告發布缺乏有效(xiao)監管,成為非(fei)法(fa)(fa)集(ji)(ji)資(zi)(zi)(zi)(zi)犯(fan)(fan)罪的(de)“幫兇”。非(fei)法(fa)(fa)集(ji)(ji)資(zi)(zi)(zi)(zi)類犯(fan)(fan)罪的(de)宣(xuan)(xuan)傳(chuan)(chuan)(chuan)(chuan)手(shou)(shou)段向(xiang)各領域(yu)全方位滲(shen)透(tou),體現(xian)出(chu)傳(chuan)(chuan)(chuan)(chuan)統媒體與新(xin)媒體融合的(de)特點。四是(shi)(shi)傳(chuan)(chuan)(chuan)(chuan)銷(xiao)型(xing)非(fei)法(fa)(fa)集(ji)(ji)資(zi)(zi)(zi)(zi)依(yi)舊活躍,“傳(chuan)(chuan)(chuan)(chuan)銷(xiao)+非(fei)法(fa)(fa)集(ji)(ji)資(zi)(zi)(zi)(zi)”的(de)復合手(shou)(shou)段使(shi)犯(fan)(fan)罪活動擴散(san)速度快,侵害范圍廣。
非(fei)法(fa)經營金(jin)融(rong)業(ye)務案件急速上(shang)升,場(chang)(chang)(chang)外(wai)(wai)(wai)個(ge)股(gu)期(qi)權(quan)案件扎堆金(jin)融(rong)貿易區。2019年,非(fei)法(fa)經營金(jin)融(rong)業(ye)務的案件中(zhong)呈(cheng)現經營對象(xiang)集中(zhong)度高(gao)(gao)、發案地點(dian)高(gao)(gao)度聚集的“雙高(gao)(gao)”特點(dian)。其中(zhong),非(fei)法(fa)經營個(ge)股(gu)場(chang)(chang)(chang)外(wai)(wai)(wai)期(qi)權(quan)案件引人(ren)(ren)關注,涉案公司高(gao)(gao)度聚集于(yu)金(jin)融(rong)要素聚集區,自(zi)行(xing)開(kai)(kai)設互聯網期(qi)權(quan)交易平臺,還開(kai)(kai)發專用于(yu)場(chang)(chang)(chang)外(wai)(wai)(wai)個(ge)股(gu)期(qi)權(quan)投(tou)(tou)資(zi)的App、微信公眾號及小程序,通過多(duo)重包(bao)裝制(zhi)造“炫目光環”,誘(you)導投(tou)(tou)資(zi)人(ren)(ren)投(tou)(tou)資(zi),往往可在2至3個(ge)月時(shi)間內(nei)聚集全國各(ge)地數百名投(tou)(tou)資(zi)人(ren)(ren)。行(xing)為人(ren)(ren)通過抬高(gao)(gao)權(quan)利金(jin)率,大肆從(cong)投(tou)(tou)資(zi)人(ren)(ren)身上(shang)“薅(hao)羊毛”,或設置提款障礙,“套(tao)牢”投(tou)(tou)資(zi)人(ren)(ren)確保犯(fan)罪收益。
私募(mu)基(ji)金(jin)(jin)(jin)行(xing)業(ye)風險(xian)進(jin)一步凸顯,值得高度(du)關注。近兩(liang)年來,出現(xian)多起涉登記備案的(de)私募(mu)基(ji)金(jin)(jin)(jin)刑事案件。案件呈現(xian)以下特點:突破合格投(tou)(tou)資(zi)者標準,直(zhi)接(jie)或變相(xiang)向社會(hui)公(gong)(gong)眾公(gong)(gong)開(kai)宣傳(chuan)推介,人數(shu)超過法律規定(ding)限制;直(zhi)接(jie)或變相(xiang)承(cheng)諾固定(ding)收益或保(bao)本收益;資(zi)金(jin)(jin)(jin)運營管理(li)缺(que)乏監督機制,私募(mu)基(ji)金(jin)(jin)(jin)管理(li)人肆意侵占、挪用基(ji)金(jin)(jin)(jin)資(zi)產,甚(shen)至用于違法犯罪;未(wei)按照合同約定(ding)向投(tou)(tou)資(zi)者披露可能(neng)存在的(de)利益沖突情況以及(ji)可能(neng)影(ying)響(xiang)投(tou)(tou)資(zi)者合法權益的(de)重大信息(xi);基(ji)金(jin)(jin)(jin)管理(li)人虛構(gou)項目或作不實陳述,造成投(tou)(tou)資(zi)人嚴(yan)重損失;基(ji)金(jin)(jin)(jin)募(mu)集(ji)時存在非法收受(shou)賄賂等職務(wu)犯罪行(xing)為等特點。
非(fei)法金(jin)(jin)融(rong)活動中(zhong)頻現金(jin)(jin)融(rong)創(chuang)(chuang)新概念,投資人易被迷惑。在金(jin)(jin)融(rong)改(gai)革創(chuang)(chuang)新背景下(xia),各類金(jin)(jin)融(rong)創(chuang)(chuang)新模式(shi)和產品大(da)大(da)促(cu)進了金(jin)(jin)融(rong)交(jiao)易便利,但也有(you)部分不法分子(zi)以金(jin)(jin)融(rong)創(chuang)(chuang)新為(wei)(wei)(wei)(wei)幌子(zi),實施違法犯(fan)罪(zui)。區塊鏈是近年來金(jin)(jin)融(rong)創(chuang)(chuang)新中(zhong)備受關(guan)注(zhu)(zhu)的(de)(de)亮點,其中(zhong)的(de)(de)應用(yong)場景——虛擬(ni)貨幣(bi)(bi)(bi)在我國監管機關(guan)已有(you)比較(jiao)明確的(de)(de)定性,將虛擬(ni)貨幣(bi)(bi)(bi)發行融(rong)資的(de)(de)行為(wei)(wei)(wei)(wei)界定為(wei)(wei)(wei)(wei)“一種未經批準非(fei)法公開融(rong)資的(de)(de)行為(wei)(wei)(wei)(wei)”。但實踐中(zhong),不法分子(zi)仍然(ran)打著金(jin)(jin)融(rong)創(chuang)(chuang)新的(de)(de)旗(qi)號,通過發行所(suo)謂虛擬(ni)貨幣(bi)(bi)(bi)、數字貨幣(bi)(bi)(bi)等方式(shi)非(fei)法集資或進行其他金(jin)(jin)融(rong)犯(fan)罪(zui)。再(zai)如人工智(zhi)能(neng)(AI)在證券活動中(zhong)的(de)(de)具體應用(yong)——智(zhi)能(neng)投顧也備受關(guan)注(zhu)(zhu),案件中(zhong)已經出(chu)現以智(zhi)能(neng)投顧之(zhi)名實施犯(fan)罪(zui)的(de)(de)情況。
非(fei)法(fa)(fa)(fa)(fa)金(jin)(jin)融(rong)(rong)(rong)平(ping)臺作用(yong)(yong)凸(tu)顯(xian)(xian),洗(xi)錢(qian)、掩(yan)飾隱瞞犯(fan)(fan)(fan)罪(zui)所得等后(hou)續型(xing)、幫(bang)助型(xing)金(jin)(jin)融(rong)(rong)(rong)犯(fan)(fan)(fan)罪(zui)較為(wei)突出。當前金(jin)(jin)融(rong)(rong)(rong)違法(fa)(fa)(fa)(fa)犯(fan)(fan)(fan)罪(zui)行為(wei)手法(fa)(fa)(fa)(fa)不斷翻新、犯(fan)(fan)(fan)罪(zui)鏈條不斷拉長。一(yi)(yi)方面(mian),專門為(wei)非(fei)法(fa)(fa)(fa)(fa)金(jin)(jin)融(rong)(rong)(rong)活動(dong)提供(gong)技術信息服務(wu)的(de)非(fei)法(fa)(fa)(fa)(fa)平(ping)臺作用(yong)(yong)凸(tu)顯(xian)(xian),以其(qi)“專業化”服務(wu)為(wei)金(jin)(jin)融(rong)(rong)(rong)違法(fa)(fa)(fa)(fa)犯(fan)(fan)(fan)罪(zui)推波(bo)助瀾(lan);另一(yi)(yi)方面(mian),金(jin)(jin)融(rong)(rong)(rong)違法(fa)(fa)(fa)(fa)犯(fan)(fan)(fan)罪(zui)的(de)幫(bang)助型(xing)、后(hou)續型(xing)犯(fan)(fan)(fan)罪(zui)突出,最為(wei)明顯(xian)(xian)的(de)是(shi)(shi)洗(xi)錢(qian)類犯(fan)(fan)(fan)罪(zui)。首先(xian),非(fei)法(fa)(fa)(fa)(fa)平(ping)臺成為(wei)聯結、復(fu)制(zhi)、擴散金(jin)(jin)融(rong)(rong)(rong)犯(fan)(fan)(fan)罪(zui)的(de)重(zhong)要節點。其(qi)次,洗(xi)錢(qian)案(an)件(jian)(jian)多(duo)與非(fei)法(fa)(fa)(fa)(fa)集資相聯系。自2016年(nian)起,上海市(shi)檢察機關每年(nian)均受理洗(xi)錢(qian)犯(fan)(fan)(fan)罪(zui)案(an)件(jian)(jian),2019年(nian)受理洗(xi)錢(qian)審查(cha)起訴案(an)件(jian)(jian)5件(jian)(jian)5人,其(qi)中4件(jian)(jian)均與非(fei)法(fa)(fa)(fa)(fa)集資犯(fan)(fan)(fan)罪(zui)相關聯。尤(you)為(wei)值(zhi)得關注(zhu)的(de)是(shi)(shi),利用(yong)(yong)虛(xu)擬幣及第三方非(fei)法(fa)(fa)(fa)(fa)平(ping)臺洗(xi)錢(qian)的(de)現象,進一(yi)(yi)步加大了犯(fan)(fan)(fan)罪(zui)線索的(de)偵查(cha)和追蹤難(nan)度。
輸(shu)入性、交叉性金(jin)融(rong)犯(fan)(fan)罪(zui)值得(de)關注,跨(kua)(kua)國(guo)跨(kua)(kua)境金(jin)融(rong)犯(fan)(fan)罪(zui)值得(de)警惕。隨著商品、資(zi)金(jin)、人(ren)員的(de)跨(kua)(kua)境大量流動,特別是我國(guo)金(jin)融(rong)市(shi)場(chang)的(de)逐步(bu)開放,跨(kua)(kua)國(guo)跨(kua)(kua)境金(jin)融(rong)犯(fan)(fan)罪(zui)案(an)件(jian)逐漸增多,輸(shu)入性、交叉性金(jin)融(rong)風險(xian)值得(de)關注。2019年(nian)出(chu)(chu)(chu)現(xian)(xian)多起外國(guo)犯(fan)(fan)罪(zui)團伙(huo)在(zai)我國(guo)實施金(jin)融(rong)犯(fan)(fan)罪(zui)的(de)案(an)件(jian)。其中(zhong),還發現(xian)(xian)一(yi)些外國(guo)公司(si),在(zai)未取得(de)我國(guo)相應金(jin)融(rong)監管部門行政許可情(qing)況(kuang)下,在(zai)我國(guo)尋找代理人(ren),開展金(jin)融(rong)違(wei)法犯(fan)(fan)罪(zui)活動。此(ci)外,外匯犯(fan)(fan)罪(zui)等涉外金(jin)融(rong)違(wei)法犯(fan)(fan)罪(zui)活動呈現(xian)(xian)出(chu)(chu)(chu)新的(de)特點,涉及多罪(zui)名、綜合(he)性的(de)逃(tao)匯手法出(chu)(chu)(chu)現(xian)(xian),外匯市(shi)場(chang)風險(xian)與銀行資(zi)金(jin)風險(xian)出(chu)(chu)(chu)現(xian)(xian)疊加態(tai)勢。
金(jin)融(rong)從(cong)業(ye)(ye)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)犯(fan)(fan)罪(zui)(zui)案(an)(an)(an)(an)件(jian)(jian)(jian)(jian)量基(ji)(ji)本持平。2019年,全市檢(jian)察機(ji)關受理(li)(li)金(jin)融(rong)從(cong)業(ye)(ye)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)員犯(fan)(fan)罪(zui)(zui)案(an)(an)(an)(an)件(jian)(jian)(jian)(jian)28件(jian)(jian)(jian)(jian)43人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren),與2018年(31件(jian)(jian)(jian)(jian)37人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren))相比,案(an)(an)(an)(an)件(jian)(jian)(jian)(jian)數和(he)(he)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)數基(ji)(ji)本持平。案(an)(an)(an)(an)件(jian)(jian)(jian)(jian)以下特(te)點值得關注:一是(shi)(shi)利(li)用(yong)其金(jin)融(rong)機(ji)構工作人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)員身(shen)(shen)份(fen)和(he)(he)客戶(hu)資源騙取資金(jin)案(an)(an)(an)(an)件(jian)(jian)(jian)(jian)仍有(you)發(fa)生。二(er)是(shi)(shi)利(li)用(yong)金(jin)融(rong)機(ji)構的(de)(de)管理(li)(li)漏(lou)洞實施(shi)犯(fan)(fan)罪(zui)(zui),并形成“窩案(an)(an)(an)(an)”。2019年,某(mou)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)壽保(bao)(bao)險(xian)公(gong)司(si)發(fa)生職(zhi)務(wu)侵占案(an)(an)(an)(an)件(jian)(jian)(jian)(jian)15起,均是(shi)(shi)該(gai)公(gong)司(si)內部人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)員針對公(gong)司(si)的(de)(de)管理(li)(li)漏(lou)洞,采用(yong)借(jie)用(yong)他人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)身(shen)(shen)份(fen)證、銀行卡(ka)等虛假增員,后虛構保(bao)(bao)單并掛(gua)靠到虛假增員的(de)(de)業(ye)(ye)務(wu)員名下的(de)(de)方式,侵占該(gai)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)壽保(bao)(bao)險(xian)公(gong)司(si)的(de)(de)訓練津貼(tie)和(he)(he)獎(jiang)勵費用(yong)。三是(shi)(shi)金(jin)融(rong)從(cong)業(ye)(ye)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)員特(te)別是(shi)(shi)原(yuan)保(bao)(bao)險(xian)、銀行從(cong)業(ye)(ye)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)員利(li)用(yong)原(yuan)有(you)客戶(hu)資源實施(shi)非法(fa)集(ji)資的(de)(de)案(an)(an)(an)(an)件(jian)(jian)(jian)(jian)以及涉備案(an)(an)(an)(an)管理(li)(li)的(de)(de)私募機(ji)構從(cong)事非法(fa)集(ji)資活動(dong)的(de)(de)案(an)(an)(an)(an)件(jian)(jian)(jian)(jian)時(shi)有(you)發(fa)生。四(si)是(shi)(shi)外資金(jin)融(rong)機(ji)構發(fa)生從(cong)業(ye)(ye)人(ren)(ren)(ren)(ren)(ren)(ren)(ren)(ren)員職(zhi)務(wu)犯(fan)(fan)罪(zui)(zui)案(an)(an)(an)(an)件(jian)(jian)(jian)(jian)。
案件中反映的趨勢與問題
金融犯罪(zui)涉及面廣、社(she)會危(wei)害性(xing)大,必(bi)須切實做好金融風(feng)險防(fang)(fang)范工作。面對金融市場(chang)的創新發(fa)展,要進一步強化(hua)(hua)底線(xian)思維和(he)風(feng)險意識,更加(jia)注重(zhong)(zhong)在(zai)穩增(zeng)長的基(ji)礎上和(he)推動高質量發(fa)展中防(fang)(fang)范風(feng)險,堅決打好防(fang)(fang)范化(hua)(hua)解(jie)重(zhong)(zhong)大金融風(feng)險攻堅戰,堅決維護好金融穩定和(he)金融安全。
金融監(jian)(jian)管(guan)(guan)能(neng)力尚需提升,“監(jian)(jian)管(guan)(guan)縫(feng)隙(xi)”尚需填(tian)補。一是(shi)金融創(chuang)新領域風險集聚,存在隱患,尚需完善金融監(jian)(jian)管(guan)(guan)理念(nian)和(he)方法(fa)。二是(shi)備案制領域的(de)違法(fa)犯罪風險線索發(fa)現手(shou)段有待提高。三(san)是(shi)金融監(jian)(jian)管(guan)(guan)縫(feng)隙(xi)和(he)監(jian)(jian)管(guan)(guan)盲區仍然存在,需加(jia)強相關市場和(he)機(ji)構的(de)全流程監(jian)(jian)管(guan)(guan)。
部(bu)分(fen)金(jin)融機構或類金(jin)融機構缺(que)乏(fa)風險意識和法(fa)(fa)律意識。如部(bu)分(fen)銀行在(zai)審(shen)貸和貸后(hou)檢查環節存在(zai)明顯疏漏,給犯罪分(fen)子以(yi)可(ke)乘之機。在(zai)私募(mu)基(ji)(ji)金(jin)領域,部(bu)分(fen)私募(mu)基(ji)(ji)金(jin)管理人公司內(nei)部(bu)構架混亂,內(nei)控(kong)措施(shi)缺(que)失,高管人員不符合基(ji)(ji)金(jin)法(fa)(fa)律法(fa)(fa)規對(dui)從業人員的任職要求,缺(que)乏(fa)安全(quan)有效管理私募(mu)基(ji)(ji)金(jin)資(zi)金(jin)的能力。
部(bu)分中(zhong)(zhong)(zhong)(zhong)介機構(gou)“看門(men)人”功能嚴重缺失。資本市(shi)(shi)場穩(wen)定發(fa)展離(li)不(bu)開(kai)一支高素質、高業務(wu)(wu)(wu)水(shui)平(ping)的證券服務(wu)(wu)(wu)中(zhong)(zhong)(zhong)(zhong)介機構(gou)隊伍。但(dan)實(shi)踐中(zhong)(zhong)(zhong)(zhong)上市(shi)(shi)公司違法違規案件(jian)卻屢(lv)禁不(bu)止(zhi),一些(xie)中(zhong)(zhong)(zhong)(zhong)介機構(gou)怠于履職甚至主動參與犯罪(zui)(zui)。在(zai)2018年辦理的欺(qi)詐發(fa)行私(si)募(mu)債(zhai)券案件(jian)中(zhong)(zhong)(zhong)(zhong),就暴(bao)(bao)露出(chu)承銷商、注冊(ce)會計(ji)師(shi)事(shi)務(wu)(wu)(wu)所等中(zhong)(zhong)(zhong)(zhong)介機構(gou)未盡勤勉義務(wu)(wu)(wu),甚至與不(bu)法分子(zi)共(gong)同實(shi)施犯罪(zui)(zui)的問題(ti)。此外,在(zai)保險(xian)詐騙案中(zhong)(zhong)(zhong)(zhong),也暴(bao)(bao)露出(chu)中(zhong)(zhong)(zhong)(zhong)介機構(gou)和專業人員參與其(qi)中(zhong)(zhong)(zhong)(zhong)助推(tui)犯罪(zui)(zui)的問題(ti)。
金(jin)(jin)融犯罪(zui)快(kuai)速(su)發(fa)(fa)展(zhan)變化,司(si)(si)法(fa)(fa)(fa)機(ji)關面臨更多挑(tiao)戰。一是金(jin)(jin)融犯罪(zui)的跨(kua)國跨(kua)境(jing)特(te)征凸(tu)顯法(fa)(fa)(fa)律(lv)適用爭(zheng)議(yi)問(wen)題。處理(li)跨(kua)國跨(kua)境(jing)金(jin)(jin)融犯罪(zui)案件中給(gei)偵查和司(si)(si)法(fa)(fa)(fa)機(ji)關帶(dai)來(lai)了諸多新挑(tiao)戰,包(bao)括法(fa)(fa)(fa)律(lv)制(zhi)度的差異、偵查合作(zuo)不(bu)(bu)盡(jin)完善、司(si)(si)法(fa)(fa)(fa)協助不(bu)(bu)足等。各(ge)法(fa)(fa)(fa)域在證據形式、取(qu)證主(zhu)體、取(qu)證階段、質證要(yao)求方(fang)面都存(cun)在差異,在偵查合作(zuo)和司(si)(si)法(fa)(fa)(fa)協助方(fang)面存(cun)在不(bu)(bu)少(shao)困難,跨(kua)境(jing)取(qu)證效(xiao)率(lv)不(bu)(bu)高(gao)、案件移(yi)交渠道不(bu)(bu)暢、境(jing)外追(zhui)逃追(zhui)贓難度大(da)(da)等問(wen)題仍然(ran)存(cun)在。二是新類型案件頻發(fa)(fa),特(te)別是對一些設(she)計(ji)復(fu)雜的金(jin)(jin)融衍生品,監管措施和法(fa)(fa)(fa)律(lv)定位尚不(bu)(bu)明確,定性存(cun)在爭(zheng)議(yi),司(si)(si)法(fa)(fa)(fa)機(ji)關面臨更大(da)(da)的審查難度。
對策建議
針對金融犯罪案件的特點(dian)和問題,筆(bi)者建(jian)議:
積極完(wan)善金融法(fa)(fa)(fa)律體(ti)系建設,為金融市場穩定(ding)發展提(ti)供法(fa)(fa)(fa)律制度(du)(du)保障(zhang)。法(fa)(fa)(fa)律制度(du)(du)完(wan)善與(yu)成(cheng)熟程度(du)(du)將直接影(ying)響一個(ge)國家治理能力和(he)治理水平,良(liang)好的(de)(de)法(fa)(fa)(fa)律制度(du)(du)設計與(yu)安排是有效(xiao)化解金融風險的(de)(de)前(qian)提(ti)和(he)基礎(chu)。在證券法(fa)(fa)(fa)實(shi)施背景下,建議推(tui)進修訂完(wan)善證券監管(guan)部門相應的(de)(de)規章制度(du)(du)、交易所交易規則(ze)和(he)自律組織(zhi)管(guan)理辦法(fa)(fa)(fa)等,并根據證券法(fa)(fa)(fa),聯動修改刑(xing)法(fa)(fa)(fa)相關條款,從而嚴密刑(xing)事法(fa)(fa)(fa)網、加(jia)大刑(xing)事處罰力度(du)(du)、提(ti)高違法(fa)(fa)(fa)犯罪成(cheng)本。
進一步完(wan)善金(jin)融(rong)監(jian)管(guan)(guan),守(shou)住(zhu)金(jin)融(rong)安全底(di)線。建議增強統合(he)協調(diao)的(de)金(jin)融(rong)監(jian)管(guan)(guan)體系(xi),形成金(jin)融(rong)監(jian)管(guan)(guan)部門統籌監(jian)管(guan)(guan)、協會(hui)自(zi)律監(jian)管(guan)(guan)、金(jin)融(rong)機(ji)(ji)構自(zi)我監(jian)管(guan)(guan)的(de)監(jian)管(guan)(guan)合(he)力,填補監(jian)管(guan)(guan)縫(feng)隙(xi)。構建穿透性(xing)、全程動態監(jian)管(guan)(guan)機(ji)(ji)制。落實金(jin)融(rong)違(wei)法(fa)(fa)犯罪(zui)行為的(de)責任(ren)追(zhui)究。加(jia)強行政執法(fa)(fa)和刑事司法(fa)(fa)銜接,加(jia)大(da)違(wei)法(fa)(fa)犯罪(zui)的(de)處(chu)罰力度(du),提高效率,完(wan)善行政處(chu)罰和刑事司法(fa)(fa)銜接渠(qu)道。
加強對金(jin)(jin)(jin)融(rong)(rong)(rong)創(chuang)新的(de)疏(shu)導和(he)監(jian)管(guan),妥善處理好創(chuang)新與風險(xian)(xian)的(de)關系。探索針對不同類(lei)型(xing)的(de)科技金(jin)(jin)(jin)融(rong)(rong)(rong)機(ji)構(gou),制(zhi)(zhi)定差異(yi)化的(de)科技金(jin)(jin)(jin)融(rong)(rong)(rong)機(ji)構(gou)準入(ru)管(guan)理、資(zi)金(jin)(jin)(jin)池管(guan)理和(he)業務范圍監(jian)管(guan)規則。借鑒探索“監(jian)管(guan)沙盒”制(zhi)(zhi)度(du),允許金(jin)(jin)(jin)融(rong)(rong)(rong)機(ji)構(gou)在申(shen)報(bao)獲批(pi)后在批(pi)準的(de)范圍內從事(shi)科技金(jin)(jin)(jin)融(rong)(rong)(rong)創(chuang)新實(shi)驗。統(tong)合監(jian)管(guan)機(ji)關的(de)數(shu)據資(zi)源,建立金(jin)(jin)(jin)融(rong)(rong)(rong)風險(xian)(xian)早期(qi)預(yu)警和(he)應(ying)急處置(zhi)機(ji)制(zhi)(zhi),避免金(jin)(jin)(jin)融(rong)(rong)(rong)風險(xian)(xian)的(de)傳(chuan)播擴散(san)。
強化自(zi)(zi)律(lv)(lv)組(zu)織作用,探(tan)索構建“以政府(fu)監管為(wei)主(zhu),以行業(ye)自(zi)(zi)律(lv)(lv)為(wei)輔”的均衡監管模式。建議進一步完善自(zi)(zi)律(lv)(lv)組(zu)織的法(fa)律(lv)(lv)基礎,為(wei)自(zi)(zi)律(lv)(lv)組(zu)織發展(zhan)提供專(zhuan)(zhuan)門(men)的法(fa)律(lv)(lv)保障。明確自(zi)(zi)律(lv)(lv)體系(xi)內各(ge)組(zu)織的管轄范圍,加(jia)強職(zhi)(zhi)責(ze)分(fen)工,處理好不同(tong)自(zi)(zi)律(lv)(lv)組(zu)織間的關系(xi),突出自(zi)(zi)律(lv)(lv)組(zu)織的專(zhuan)(zhuan)業(ye)性,切實將自(zi)(zi)律(lv)(lv)職(zhi)(zhi)能落實到位。
強(qiang)化資(zi)本市場中(zhong)介(jie)機(ji)(ji)構“看門人”職(zhi)能(neng),依法(fa)追究(jiu)怠于履職(zhi)的法(fa)律(lv)責(ze)任。建(jian)議進(jin)一步規(gui)(gui)范證(zheng)券中(zhong)介(jie)機(ji)(ji)構的執業行為(wei),加強(qiang)其內(nei)控合規(gui)(gui)建(jian)設;推動中(zhong)介(jie)機(ji)(ji)構工(gong)作人員職(zhi)業道德教育、違(wei)法(fa)犯(fan)罪警示宣傳,督(du)促(cu)其審慎履職(zhi)、嚴守職(zhi)業操守和法(fa)律(lv)底線;加強(qiang)對中(zhong)介(jie)機(ji)(ji)構的外部監督(du),促(cu)使中(zhong)介(jie)機(ji)(ji)構誠(cheng)信執業;規(gui)(gui)范證(zheng)券中(zhong)介(jie)機(ji)(ji)構責(ze)任承擔體系,綜合運用民事(shi)(shi)、行政(zheng)、刑事(shi)(shi)處罰手(shou)段,提高(gao)中(zhong)介(jie)機(ji)(ji)構違(wei)法(fa)犯(fan)罪成本。
優化投資(zi)者保護(hu)機(ji)制(zhi),維護(hu)投資(zi)者合(he)法權益(yi)(yi)。加(jia)強(qiang)法治宣傳,引導金融消費者理性投資(zi)。建議(yi)金融機(ji)構盡職(zhi)履行審核義務、風險(xian)告(gao)知義務和信息披(pi)露義務,避免不具(ju)有(you)(you)相應風險(xian)承(cheng)受(shou)能力的(de)公眾盲目(mu)投資(zi)。建議(yi)有(you)(you)關機(ji)構落實(shi)舉報獎勵制(zhi)度(du),推(tui)進社會公眾的(de)投訴、監督和舉報,加(jia)強(qiang)金融違(wei)法行為的(de)查處(chu)和處(chu)罰。檢(jian)察機(ji)關可以探索證券期貨(huo)市場(chang)公益(yi)(yi)訴訟制(zhi)度(du),并推(tui)進認(ren)罪認(ren)罰從寬制(zhi)度(du)適用(yong),切實(shi)維護(hu)投資(zi)者合(he)法權益(yi)(yi)。
(上海金融(rong)檢察(cha)研究中心 撰稿人(ren):胡春健、李小(xiao)文、陳晨(chen)、多麗華、喻天碧、楊慧(hui)、周廉潔(jie)、許磊(lei)、張(zhang)澤辰(chen))