金融消费者保护对金融包容影响的研究
摘要
深入推动金融包容发展使现代金融服务惠及广大人民群众和经济社会发展薄弱环节，对于推进农村金融发展，缩小城乡发展差距，促进社会的公平正义，具有重要的现实意义。发展金融包容离不开对金融消费者的良好保护。没有充分的金融消费者保护，金融包容将失去发展优势。从理论上研究金融包容与金融消费者保护之间的关系，有助于丰富和发展金融包容与金融消费者保护理论。同时，在我国金融包容体系构建刚刚起步的背景下，从金融消费者保护视角对中国惠普金融体系构建问题进行理论研究与实证探讨，在当前是一个迫切需要研究的热点问题。
本文在综合分析金融包容和金融消费者保护理论的基础上，创新地运用基于计量方法、媒体报道和调查问卷统计分析、案例研究的方法，从理论研究与量化分析两方面系统、深入地研究中国金融包容体系下金融消费者保护的构建问题。主要的研究内容、成果和创新性工作如下：
1、金融消费者保护与金融包容关系的理论研究。从分析金融包容的微观、中观、宏观框架入手，重点解决了金融包容体系下金融供需双方的特点，结合金融消费者保护必要性的理论研究，阐述了加强金融消费者保护对发展金融包容的重要性。创新地提出包容不足与包容过度（虚假包容）的思想，构建了金融消费者保护影响金融包容的传导路径，提出金融消费者保护与金融包容程度存在非线性的浅“U”型关系的理论假设。
2、金融消费者保护影响金融包容路径的实证分析。金融消费保护作用于金融包容的路径研究，是研究的难点之一。本文在理论分析的基础上，基于跨国数据建立截面数据进行实证测算，验证了金融消费者保护与金融包容程度存在非线性的浅“U”型关系。
3、通过统计分析测算我国金融消费者保护权益受损现状，提出加强金融消费者保护对构建我国金融包容发展的重要意义。通过媒体报道的统计分析显示，我国存在金融消费者保护权益受损的情况，且总体呈现增长趋势，说明现有消费者权益保护机制并不能满足金融需求快速增长和金融包容发展的需要。尽管我国已经开始建立金融消费者保护机制，但尚未意识到应将金融消费者保护纳入到金融包容体系建设中，金融消费者保护还面临法律制度体系不完善、监管体制尚不健全、金融机构主动不强、消费者金融素养整体水平偏低等诸多问题。我国金融消费者保护的不足制约了金融包容的发展，由此形成了有中国特色的金融包容二元特征：城市包容过度与农村包容不足并存。
4、基于理论研究和实证测算，提出相关的建议。在借鉴国际先进经验的基础上，提出完善我国金融消费者保护机制的政策建议，即在注意防止过度保护造成新的金融排斥的情况下，注重完善法律制度框架、完善金融消费者保护机构的具体职责、建立监管部门间的协调合作机制、健全和完善金融消费纠纷处理机制、加强金融机构消费者保护理念、加强公众金融知识普及教育以及金融消费权益保护队伍建设。
It is very significant to deeply improve financial inclusion that makes modernfinancial service benefit more people and week areas of social and economicaldevelopment for promoting rural finance, narrowing the gap between urban andrural development and promoting social equity and justice. Financial inclusion isinseparable from the development of good financial consumer protection.Without effective financial consumer protect, the financial inclusion will lose itsdevelopment advantage. Research on the relationship between financial inclusionand financial consumer protect will contribute to enriching and developing thetheory of financial consumer protect and financial inclusion. Meanwhile, inChina’s financial inclusion system just under the fledgling background, it is a hotissue of how to construct financial inclusion system from the perspective offinancial consumer protect on theoretical and empirical study.On the base of comprehensive analysis of financial inclusion theory and financialconsumer protect theory, innovatively using methods of econometric analysis,statistics analysis based on media reports and questionnaires, and cases study,the paper deeply studies the issues of financial consumer protect in the system offinancial inclusion in China from the view of theoretical and quantizationanalysis. The main study issues, positive result and innovative work are asfollows:
1. Necessary theoretical analysis on the relationship between financial inclusionand financial consumer protect. Beginning with the analysis of macro, mesoand micro of financial inclusion framework, the paper focus on the analysisof characteristics of supply and demand in financial inclusion system.Combined with the necessary theoretical research on financial consumerprotect, the paper elaborates the importance of strengthening financialconsumer protect in financial inclusion system. After innovatively proposingthe lower inclusion and over-inclusion (false inclusion) and conduction pathfrom financial consumer protect to financial inclusion, the paper assumes theexistence of non-linear shallow “U”-shaped relationship between the degreeof financial inclusion and financial consumer protect.
2. The empirical analysis of the impact of financial consumer protect tofinancial inclusion. The effective path from financial consumer protect tofinancial inclusion level is one of the difficulties of the study. Based on thetheoretical analysis, the paper confirms the “U”-shaped relationship betweenthe degree of financial inclusion and financial consumer protect by across-country empirical test using cross-sectional data.
3. The paper uses statistics analysis to study the current situation of rightsdamage of financial consumer in China and proposes the significance tostrengthen financial consumer protect for developing financial inclusionsystem. Based on the statistics analysis based on media reports, the studypoints out that rights damage of clients exists in financial sectors in Chinaand the number of events become growing year by year, indicating that theexisting consumer protection measures can not meet the needs of fast growing financial needs and development of financial sector. Although China hasstarted to build financial consumer protection mechanisms, financialconsumer protect system still have some problems reflecting the followingfive areas: not incorporating financial consumer protect into the constructionof financial inclusion system, imperfect legal system and supervisionframework, weak of awareness and enforcement to protect financial clients,low level of financial literature overall. The deficiency of financial consumerprotect system restrains the development of financial inclusion, which resultsto the dualistic characteristics of coexist of over-inclusion in urban andless-inclusion in rural.
4. Based on theoretical analysis and empirical test to propose relevantrecommendations. On the basis of advanced international experience, thepaper proposes that the financial consumer protection system should beconstructed from the following aspects: accelerating the improvement of legalsystem of financial consumer protect framework, improving the supervisionmechanism, perfecting multi-level handling mechanism for financialconsumer disputes, raising awareness of financial institutions regarding toprotecting consumers’ rights, strengthening public financial literacyeducation and financial staff training. At the same time, more attention isneeded on avoiding new financial exclusion by over-protecting in the processof constructing financial consumer protect mechanism.
本文在综合分析金融包容和金融消费者保护理论的基础上，创新地运用基于计量方法、媒体报道和调查问卷统计分析、案例研究的方法，从理论研究与量化分析两方面系统、深入地研究中国金融包容体系下金融消费者保护的构建问题。主要的研究内容、成果和创新性工作如下：
1、金融消费者保护与金融包容关系的理论研究。从分析金融包容的微观、中观、宏观框架入手，重点解决了金融包容体系下金融供需双方的特点，结合金融消费者保护必要性的理论研究，阐述了加强金融消费者保护对发展金融包容的重要性。创新地提出包容不足与包容过度（虚假包容）的思想，构建了金融消费者保护影响金融包容的传导路径，提出金融消费者保护与金融包容程度存在非线性的浅“U”型关系的理论假设。
2、金融消费者保护影响金融包容路径的实证分析。金融消费保护作用于金融包容的路径研究，是研究的难点之一。本文在理论分析的基础上，基于跨国数据建立截面数据进行实证测算，验证了金融消费者保护与金融包容程度存在非线性的浅“U”型关系。
3、通过统计分析测算我国金融消费者保护权益受损现状，提出加强金融消费者保护对构建我国金融包容发展的重要意义。通过媒体报道的统计分析显示，我国存在金融消费者保护权益受损的情况，且总体呈现增长趋势，说明现有消费者权益保护机制并不能满足金融需求快速增长和金融包容发展的需要。尽管我国已经开始建立金融消费者保护机制，但尚未意识到应将金融消费者保护纳入到金融包容体系建设中，金融消费者保护还面临法律制度体系不完善、监管体制尚不健全、金融机构主动不强、消费者金融素养整体水平偏低等诸多问题。我国金融消费者保护的不足制约了金融包容的发展，由此形成了有中国特色的金融包容二元特征：城市包容过度与农村包容不足并存。
4、基于理论研究和实证测算，提出相关的建议。在借鉴国际先进经验的基础上，提出完善我国金融消费者保护机制的政策建议，即在注意防止过度保护造成新的金融排斥的情况下，注重完善法律制度框架、完善金融消费者保护机构的具体职责、建立监管部门间的协调合作机制、健全和完善金融消费纠纷处理机制、加强金融机构消费者保护理念、加强公众金融知识普及教育以及金融消费权益保护队伍建设。
It is very significant to deeply improve financial inclusion that makes modernfinancial service benefit more people and week areas of social and economicaldevelopment for promoting rural finance, narrowing the gap between urban andrural development and promoting social equity and justice. Financial inclusion isinseparable from the development of good financial consumer protection.Without effective financial consumer protect, the financial inclusion will lose itsdevelopment advantage. Research on the relationship between financial inclusionand financial consumer protect will contribute to enriching and developing thetheory of financial consumer protect and financial inclusion. Meanwhile, inChina’s financial inclusion system just under the fledgling background, it is a hotissue of how to construct financial inclusion system from the perspective offinancial consumer protect on theoretical and empirical study.On the base of comprehensive analysis of financial inclusion theory and financialconsumer protect theory, innovatively using methods of econometric analysis,statistics analysis based on media reports and questionnaires, and cases study,the paper deeply studies the issues of financial consumer protect in the system offinancial inclusion in China from the view of theoretical and quantizationanalysis. The main study issues, positive result and innovative work are asfollows:
1. Necessary theoretical analysis on the relationship between financial inclusionand financial consumer protect. Beginning with the analysis of macro, mesoand micro of financial inclusion framework, the paper focus on the analysisof characteristics of supply and demand in financial inclusion system.Combined with the necessary theoretical research on financial consumerprotect, the paper elaborates the importance of strengthening financialconsumer protect in financial inclusion system. After innovatively proposingthe lower inclusion and over-inclusion (false inclusion) and conduction pathfrom financial consumer protect to financial inclusion, the paper assumes theexistence of non-linear shallow “U”-shaped relationship between the degreeof financial inclusion and financial consumer protect.
2. The empirical analysis of the impact of financial consumer protect tofinancial inclusion. The effective path from financial consumer protect tofinancial inclusion level is one of the difficulties of the study. Based on thetheoretical analysis, the paper confirms the “U”-shaped relationship betweenthe degree of financial inclusion and financial consumer protect by across-country empirical test using cross-sectional data.
3. The paper uses statistics analysis to study the current situation of rightsdamage of financial consumer in China and proposes the significance tostrengthen financial consumer protect for developing financial inclusionsystem. Based on the statistics analysis based on media reports, the studypoints out that rights damage of clients exists in financial sectors in Chinaand the number of events become growing year by year, indicating that theexisting consumer protection measures can not meet the needs of fast growing financial needs and development of financial sector. Although China hasstarted to build financial consumer protection mechanisms, financialconsumer protect system still have some problems reflecting the followingfive areas: not incorporating financial consumer protect into the constructionof financial inclusion system, imperfect legal system and supervisionframework, weak of awareness and enforcement to protect financial clients,low level of financial literature overall. The deficiency of financial consumerprotect system restrains the development of financial inclusion, which resultsto the dualistic characteristics of coexist of over-inclusion in urban andless-inclusion in rural.
4. Based on theoretical analysis and empirical test to propose relevantrecommendations. On the basis of advanced international experience, thepaper proposes that the financial consumer protection system should beconstructed from the following aspects: accelerating the improvement of legalsystem of financial consumer protect framework, improving the supervisionmechanism, perfecting multi-level handling mechanism for financialconsumer disputes, raising awareness of financial institutions regarding toprotecting consumers’ rights, strengthening public financial literacyeducation and financial staff training. At the same time, more attention isneeded on avoiding new financial exclusion by over-protecting in the processof constructing financial consumer protect mechanism.
引文
2“具有社会和金融双重目标”的金融机构主要指服务于贫困、弱势人群的小额信贷、微型金融等机构不是以追求利润最大化为目标，而是实现财务可持续性以及较少贫困两个目标。最近研究表明，当经营得当，这两个目标可以同时共存，相互促进，从而为客户和投资者提供一个健康的长期商业模式。
3阿尔弗列德.翰尼葛，斯坦芬.杰森，《金融包容和金融稳定：当前的政策问题》，《新金融》2011第3期。
8张文章：“储户本想存款却“被保险””，《中国消费者报》2010年12月20日第A03版。
9申东:“宁夏首起银行卡盗刷案银行败诉”，《法制日报》2012年11月9日第008版。
10“储户打印96页对账单遭银行收费4200元”，《长沙晚报》2012年3月11日第A5版。
11网址：http://news.zgjrw.com/baoguangtai/
12如2012年底，四大国有银行的个人人民币存款余额达215459.12亿元，占全部金融机构人民币存款余额411002.77的52.4%。仅工行的个人客户数量就超过2.1亿。来源：中国人民银行网站：http://www.pbc.gov.cn/publish/diaochatongjisi/3767/index.html和工行官网：http://www.icbc.com.cn/icbc.htm
142013年4月，人民银行选择上海、辽宁、山东、湖北、广东、四川、陕西、河北、江西、云南十地共计
137家金融机构，针对我国金融消费者保护情况开展大型问卷调查，共收回137份调查问卷。其中，银行业金融机构71家（其中，国有大型商业银行分支机构21家，股份制商业银行的分支机构29家，地方性中小银行21家），证券业金融机构31家（其中，证券公司20家，基金公司5家，期货公司6家），保险业金融机构27家，信托公司8家，占比分别为52%，23%，20%和5%。
15根据人民银行的调查问卷结果显示，86.8%的金融机构制定了金融消费权益保护相关指引或规章制度。
16Chairman Ben S. Bernanke. Financial literacy Before the Committee on Banking, Housing, and Urban Affairsof the United States Senate.2006-5-23.
17数据来源：http://szb.northnews.cn/nmgrb/html/2011-05/06/content_827355.htm。
18数据来源：http://money.163.com/13/0110/11/8KRRP7B5002529IR.html。
19数据来源:银监会网站（2012年银行业金融机构资产总额近134万亿元），保监会网站（2012年保险业资产总额为7.35万亿），2012年底我国证券行业总资产为1.72万亿元（数据来源：http://www.shfinancialnews.com/xww/2009jrb/node5019/node5025/userobject1ai111335.html）
20数据来源：http://finance.chinanews.com/fortune/2013/02-20/4581501.shtml
21数据来源：http://www.cbrc.gov.cn/chinese/home/docView/2C08078B4A5845EBB24DFC07FEEC1490.html
22许圣道、田霖.我国农村地区金融排斥研究[J]金融研究,2008(7):195-205
23数据来源：http://www.wfyhxh.com/ShowNews.asp?ClassID=171&ID=735
24http://news.xinhuanet.com/fortune/2013-09/01/c_117178623.htm
25中国人民银行于2013年7月开展消费者金融素养调查，根据分层随机抽样原则，按照东部、中部、西部、东北的区域分布，在全国范围内选取了7个具有代表性的省份，按照省会城市市区、地级市市区和县三个层面进行抽样调查，最终完成有效样本数2100个。
26数据来源：The Joint Center for Housing Studies at Harvard University the25thAnniversary of the CommunityReinvestment Act Access to Capital in an Evolving Financing Services System
[EB/OL].[2002-03-30].http://www.jchs.harvarrd.edu/publications/governmentprograms/cra02-1.pdf
27信息来源：http://news.xinhuanet.com/fortune/2008-04/05/content_7921466.htm。
28张韶华孙天琦.世界银行CGAP《金融可获取性报告2010》中对各国金融消费者保护的评估[J].西部金融,2011(6).
29郭丹.金融服务法研究[M].北京:法律出版社,2010:22-23.
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3阿尔弗列德.翰尼葛，斯坦芬.杰森，《金融包容和金融稳定：当前的政策问题》，《新金融》2011第3期。
8张文章：“储户本想存款却“被保险””，《中国消费者报》2010年12月20日第A03版。
9申东:“宁夏首起银行卡盗刷案银行败诉”，《法制日报》2012年11月9日第008版。
10“储户打印96页对账单遭银行收费4200元”，《长沙晚报》2012年3月11日第A5版。
11网址：http://news.zgjrw.com/baoguangtai/
12如2012年底，四大国有银行的个人人民币存款余额达215459.12亿元，占全部金融机构人民币存款余额411002.77的52.4%。仅工行的个人客户数量就超过2.1亿。来源：中国人民银行网站：http://www.pbc.gov.cn/publish/diaochatongjisi/3767/index.html和工行官网：http://www.icbc.com.cn/icbc.htm
142013年4月，人民银行选择上海、辽宁、山东、湖北、广东、四川、陕西、河北、江西、云南十地共计
137家金融机构，针对我国金融消费者保护情况开展大型问卷调查，共收回137份调查问卷。其中，银行业金融机构71家（其中，国有大型商业银行分支机构21家，股份制商业银行的分支机构29家，地方性中小银行21家），证券业金融机构31家（其中，证券公司20家，基金公司5家，期货公司6家），保险业金融机构27家，信托公司8家，占比分别为52%，23%，20%和5%。
15根据人民银行的调查问卷结果显示，86.8%的金融机构制定了金融消费权益保护相关指引或规章制度。
16Chairman Ben S. Bernanke. Financial literacy Before the Committee on Banking, Housing, and Urban Affairsof the United States Senate.2006-5-23.
17数据来源：http://szb.northnews.cn/nmgrb/html/2011-05/06/content_827355.htm。
18数据来源：http://money.163.com/13/0110/11/8KRRP7B5002529IR.html。
19数据来源:银监会网站（2012年银行业金融机构资产总额近134万亿元），保监会网站（2012年保险业资产总额为7.35万亿），2012年底我国证券行业总资产为1.72万亿元（数据来源：http://www.shfinancialnews.com/xww/2009jrb/node5019/node5025/userobject1ai111335.html）
20数据来源：http://finance.chinanews.com/fortune/2013/02-20/4581501.shtml
21数据来源：http://www.cbrc.gov.cn/chinese/home/docView/2C08078B4A5845EBB24DFC07FEEC1490.html
22许圣道、田霖.我国农村地区金融排斥研究[J]金融研究,2008(7):195-205
23数据来源：http://www.wfyhxh.com/ShowNews.asp?ClassID=171&ID=735
24http://news.xinhuanet.com/fortune/2013-09/01/c_117178623.htm
25中国人民银行于2013年7月开展消费者金融素养调查，根据分层随机抽样原则，按照东部、中部、西部、东北的区域分布，在全国范围内选取了7个具有代表性的省份，按照省会城市市区、地级市市区和县三个层面进行抽样调查，最终完成有效样本数2100个。
26数据来源：The Joint Center for Housing Studies at Harvard University the25thAnniversary of the CommunityReinvestment Act Access to Capital in an Evolving Financing Services System
[EB/OL].[2002-03-30].http://www.jchs.harvarrd.edu/publications/governmentprograms/cra02-1.pdf
27信息来源：http://news.xinhuanet.com/fortune/2008-04/05/content_7921466.htm。
28张韶华孙天琦.世界银行CGAP《金融可获取性报告2010》中对各国金融消费者保护的评估[J].西部金融,2011(6).
29郭丹.金融服务法研究[M].北京:法律出版社,2010:22-23.
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