随着金融行业的快速发展，合规管理在保障金融机构稳健运营、维护市场秩序中扮演着至关重要的角色。为提升金融机构的依法合规经营能力，国家金融监督管理总局（“金融监管总局”）整合《商业银行合规风险管理指引》、《保险公司合规管理指引》等规定，于2024年12月25日发布《金融机构合规管理办法》（国家金融监督管理总局令2024年第7号，“《办法》”），并将于2025年3月1日起施行。《办法》旨在规范各类金融机构的合规管理，明确合规职责，强化风险防控，推动金融行业健康有序发展。
在《办法》出台之前，银行及保险机构的合规监管规定主要为《商业银行合规风险管理指引》和《保险公司合规管理指引》。《办法》拓宽了适用范围，将由金融监管总局及其派出机构监管的各类金融机构纳入其中，包括政策性银行、商业银行、保险公司等原本已受规制的机构，还新增金融资产管理公司、信托公司、企业集团财务公司、金融租赁公司、汽车金融公司、消费金融公司、货币经纪公司、理财公司、金融资产投资公司、保险公司（包括再保险公司）、保险资产管理公司、保险集团（控股）公司、相互保险组织等机构，并明确金融控股公司、农村合作银行、农村信用合作社、外国银行分行和外国再保险公司分公司等机构参照执行。《办法》通过扩大适用范围，有助于不同类型金融机构之间合规标准的统一，整体提升金融行业的合规水平。根据《办法》，“合规规范”不仅涵盖法律、行政法规、部门规章及规范性文件等外部规范，还包括金融机构为落实监管要求而制定的内部规范。《办法》将“合规管理”界定为“金融机构以确保遵循合规规范、有效防控合规风险为目的，以提升依法合规经营管理水平为导向，以经营管理行为和员工履职行为为对象，开展的包括建立合规制度、完善运行机制、培育合规文化、强化监督问责等管理活动”，突出强调以经营管理行为和员工履职行为作为规范对象，并在要求建立合规和问责制度的基础上，还提出“培育合规文化”的目标。对于“合规风险”，《办法》沿用2005年4月巴塞尔银行监管委员会在《合规与银行内部合规部门》中的定义，即“因金融机构经营管理行为或者员工履职行为违反合规规范，造成金融机构或者其员工承担刑事、行政、民事法律责任，财产损失、声誉损失以及其他负面影响的可能性”，将风险限定为带来损失的可能性。为保障合规管理部门的独立性、客观性和公正性，《办法》明确要求建立“防火墙”机制，即合规管理部门及其岗位应当独立于前台业务、财务、资金运用、内部审计等可能与合规管理职责存在冲突的部门或岗位，合规管理部门及其工作人员不得兼任与合规管理职责相冲突的其他职务。《办法》要求金融机构设立合规管理部门，以确保合规管理职责得到清晰界定和有效落实，对于多个部门共同承担合规管理职责的情况，若职责不存在冲突，则必须指定一个牵头部门统一协调。即加强合规管理的组织架构，确保合规管理由专职团队负责，从而提升执行力与责任意识。具体而言，《办法》将合规管理部门的职责细化为以下五个方面：
4. 首次明确首席合规官的合规核心作用
《办法》明确首席合规官在金融机构内的合规核心地位，这是我国首次在监管规定中专门突出首席合规官的关键作用。具体而言，首席合规官的职责主要包括如下四个方面：
此外，《办法》采取了一系列有效措施保证首席合规官的独立性以保障职权的有效行使：
5. 明确董事会、高级管理人员及部门主要负责人职责
《办法》明确各级人员在合规管理中的职责分工，通过明确职责，《办法》构建了从董事会到各级管理人员的全方位合规管理框架，为金融机构的合规文化建设与风险防控提供了制度保障，具体而言内容为：
《办法》将于2025年3月1日起施行，并设置为期一年的过渡期。过渡期内，金融机构需逐项对照《办法》的要求，确保在过渡期结束前将相关规定融入自身制度和实际操作中。在《办法》施行前，已设置的首席合规官、合规总监、合规负责人，或作为高级管理人员的总法律顾问，可继续履行《办法》中规定的首席合规官和合规官职责。虽然设置了一年的过渡期，结合我们的多年服务各类金融机构的经验，我们理解，考虑到金融机构适用的法律法规、监管政策和内部集团（公司）治理结构的复杂性，相关部门、岗位、人员、职权的设置及调整所需的决策流程及时间，在一年内实现完全合规其实具有较大挑战性，如何在规定期限内实现平稳过渡并逐步提高合规水位对于金融机构而言至关重要，就此，我们提出如下建议供业界参考：（1）建议金融机构深入理解《办法》的具体要求，再结合经验，对现有合规管理体系进行全面评估，找出与新规要求的差距，并根据差距分析结果，制定详细的合规策略和实施计划，明确时间节点、责任分配和资源配置；（2）建议金融机构根据新规要求，调整合规部门的组织架构，确保合规部门的独立性和权威性，梳理和优化业务流程，完善合规相关制度，确保业务操作符合《办法》要求；（3）建议金融机构加强合规相关人员的培训，提升其对《办法》的理解和执行能力；（4）建议金融机构强化内部控制和监督机制，确保合规风险得到有效控制，建立风险管理和应急预案，以应对过渡期间可能出现的合规风险；（5）建议金融机构加强与监管机构的沟通，及时获取监管指导，协调内部各部门的合规工作，并持续监测合规状况，定期评估合规管理体系的有效性，并根据评估结果进行调整。整体来看，《办法》内容明确且全面，既从多维度覆盖了合规管理的核心要素，又不失重点，例如设立独立的合规管理部门，并建立“防火墙”机制以避免利益冲突，确保合规管理工作的独立性和公正性，同时通过明确部门职责分工，提升了合规工作的执行力，对首席合规官职责的详细规定，体现了监管的专业性与针对性，明确了董事会、高级管理人员以及各部门主要负责人的合规管理职责，构建了覆盖全面、层次分明的合规管理体系。《办法》的发布及实施标志着我国金融行业合规管理迈入新的阶段。通过健全的合规管理体系，金融机构不仅能够有效防范合规风险，提升运营效率，还能增强市场信任，为推动金融行业的健康发展贡献力量。当然，一年的过渡期对于金融机构而言任务艰巨，就此，我们建议各类金融机构结合法规以及实际情况，制定切实可行的合规管理规划。Financial Compliance Management: Practices and Insights
—The Analysis of Administrative Measures for Financial Institution Compliance ManagementWith the rapid development of the financial industry, compliance management plays a vital role in ensuring the sound operation of financial institutions and maintaining market order. To enhance financial institutions' ability to operate in compliance with laws and regulations, the National Financial Regulatory Administration ("NFRA") integrated various compliance management guidelines, including those for commercial banks and insurance companies. On December 25, 2024, NFRA issued the "Administrative Measures for Financial Institution Compliance Management" (NFRA Order No. 7, 2024, hereinafter referred to as the "Measures"), which will take effect on March 1, 2025. The Measures aim to standardize compliance management across financial institutions, clarify compliance responsibilities, strengthen risk control, and promote healthy development of the financial industry.
II. Five Key Highlights of the Measures
1. Expanding Regulatory Scope of Applicable Financial InstitutionsPrior to the introduction of the Measures, regulatory provisions mainly consisted of the Compliance Risk Management Guidelines for Commercial Banks and the Compliance Management Guidelines for Insurance Companies. The release of the Measures broadens the scope of application to include various financial institutions supervised by the NFRA and its branch offices. This encompasses not only previously regulated institutions such as policy banks, commercial banks, and insurance companies, but also newly added financial institutions like financial asset management companies, trust companies, corporate group finance companies, financial leasing companies, auto finance companies, consumer finance companies, money brokerage companies, wealth management companies, financial asset investment companies, insurance companies (including reinsurance companies), insurance asset management companies, insurance groups (holding) companies, and mutual insurance organizations. It explicitly requires financial holding companies, rural cooperative banks, rural credit cooperatives, foreign bank branches, and foreign reinsurance company branches to implement these regulations accordingly. By incorporating a broader range of financial institutions into a unified compliance management system, the Measures effectively expand regulatory coverage. This not only promotes uniformity in compliance standards across different types of financial institutions but also enhances overall industry compliance levels.2. Clarifying Compliance Management Related DefinitionsThe Measures clarify that "compliance norms" encompass not only external regulations such as laws, administrative regulations, departmental rules, and normative documents, but also internal regulations established by financial institutions to implement regulatory requirements. The Measures define "compliance management" as "management activities conducted by financial institutions aimed at ensuring adherence to compliance norms and effectively preventing compliance risks, oriented towards improving legal compliance operations management, targeting business management behaviors and employee performance behaviors, including establishing compliance systems, improving operational mechanisms, cultivating compliance culture, and strengthening supervision and accountability." This definition emphasizes business management and employee performance behaviors as regulatory targets, and proposing "cultivating compliance culture" as an objective beyond establishing compliance and accountability systems. Regarding the concept of "compliance risk", the Measures adopt the definition from the Basel Committee on Banking Supervision's "Compliance and the Compliance Function in Banks" (April 2005), defining it as "the possibility of financial institutions or their employees bearing criminal, administrative, civil legal responsibilities, property losses, reputational losses, and other negative impacts due to violations of compliance norms by financial institutions' business management behaviors or employee performance behaviors," limiting risk to the possibility of losses.3. Establishing Efficient and Independent Compliance Management DepartmentsTo ensure the independence, objectivity, and fairness of compliance management departments, the Measures explicitly require establishing "firewall" mechanisms: the compliance management departments and positions should be independent from front-office business, finance, funds utilization, internal audit, and other departments or positions that may conflict with compliance management responsibilities.The Measures explicitly require financial institutions to establish compliance management departments to ensure compliance management responsibilities are clearly defined and effectively implemented. In cases where multiple departments share compliance management responsibilities, if there are no conflicts in responsibilities, a lead department must be designated for unified coordination. This provision strengthens the organizational structure of compliance management, ensuring compliance management is handled by dedicated teams, thereby enhancing execution and responsibility awareness.The responsibilities of the compliance management department are detailed in the following five aspects:
4. First-time Clarification of the Core Compliance Role of Chief Compliance OfficerThe Measures clarify the compliance core position of the Chief Compliance Officer (“CCO”) within financial institutions, marking the first time in China that regulatory provisions specifically highlight the key role of the CCO. The CCO's responsibilities can be divided into four aspects:
The Measures adopted a series of effective measures to ensure the independence of CCO and guarantee the effective exercise of their authority:
5. Clarifying Responsibilities of the Board of Directors, Senior Management, and Department HeadsThe Measures clearly define the division of responsibilities among various levels of personnel in compliance management. By clarifying these responsibilities, the Measures establish a comprehensive compliance management framework that spans from the board of directors to various levels of management. This framework provides institutional support for the development of a compliance culture and risk prevention within financial institutions. Specifically, the content includes:III. Suggestions and Expectation
The Measures are scheduled to take effect on March 1, 2025, with a one-year transition period. During this period, financial institutions must systematically review and align with the requirements of the Measures, ensuring that relevant provisions are incorporated into their internal policies and practical operations before the transition period ends. CCO, Compliance Directors, Compliance Officers, or General Counsels serving as senior management personnel appointed before the implementation of the Measures may continue to perform the duties of CCO and Compliance Officer as stipulated. Although a one-year transition period has been set, based on our years of experience serving various financial institutions, we understand that considering the complexity of applicable laws and regulations, regulatory policies, and the internal governance structures of financial institutions and their parent companies, the decision-making processes and time required for setting up and adjusting relevant departments, positions, personnel, and responsibilities, achieving full compliance within one year presents a significant challenge. How to achieve a smooth transition within the prescribed time frame and gradually improve compliance levels is crucial for financial institutions. In this regard, we offer the following recommendations for the industry’s reference:(a) We recommend that financial institutions thoroughly understand the specific requirements of the Measures. Based on this understanding and leveraging experience, they should conduct a comprehensive assessment of their existing compliance management systems, identify gaps between the current system and the new regulatory requirements, and, based on the gap analysis, develop a detailed compliance strategy and implementation plan. This plan should clearly define timelines, responsibility allocation, and resource distribution.(b) We recommend that financial institutions adjust the organizational structure of their compliance management departments in accordance with the new regulations, ensuring the independence and authority of the compliance function. They should sort and optimize business processes, improve compliance-related systems, and ensure that business operations comply with the Measures requirements.(c) We recommend that financial institutions enhance training for compliance-related personnel to improve their understanding of the Measures and their ability to implement them effectively.(d) We recommend that financial institutions strengthen their internal control and supervision mechanisms to ensure effective management of compliance risks. They should establish risk management and emergency response plans to address potential compliance risks during the transition period.(e) We recommend that financial institutions strengthen communication with regulatory authorities to obtain timely regulatory guidance. They should coordinate compliance efforts across internal departments, continuously monitor compliance status, and regularly assess the effectiveness of their compliance management systems. Based on the evaluation results, adjustments should be made as necessary.Overall, the Measures are clear and comprehensive, covering core elements of compliance management from multiple dimensions while maintaining focus. For example, establishing independent compliance management departments with "firewall" mechanisms to avoid conflicts of interest ensures the independence and impartiality of compliance management. By clarifying departmental responsibilities, it enhances compliance work execution. The detailed specifications for CCO reflect regulatory professionalism and specificity. The clear delineation of compliance management responsibilities for the board of directors, senior management, and department heads establishes a comprehensive and hierarchical compliance management system. The issuance and implementation of the Measures mark a new phase in China's financial industry compliance management. Through a sound compliance management system, financial institutions can effectively prevent compliance risks, improve operational efficiency, and enhance market trust, contributing to the healthy development of the financial industry.Indeed, the one-year transition period presents a challenging task for financial institutions. Therefore, we recommend that various types of financial institutions, in conjunction with applicable regulations and their actual circumstances, develop practical and feasible compliance management plans.
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