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论信用保险的法律性质/佟刚

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论信用保险的法律性质

佟刚


【正文】

  信用保证保险的概念及历史

  09年修订的《保险法》并未提出信用保证保险的概念,而是在第95条中以法律条文的形式将保证保险和责任保险并列:财产保险业务包括财产损失保险、责任保险、信用保险、保证保险等保险业务。在理论和实务中,保证保险和责任保险的区分多有争议,一般将二者合称信用保证保险。

  保证保险属财产保险的一种,是指由作为保证人的保险人为作为被保证人的被保险人向权利人提供担保的一种形式,如果由于被保险人的作为或不作为不履行合同义务,致使权利人遭受经济损失,保险人向被保险人或受益人承担赔偿责任[1]。早在18世纪末的欧洲,商人们就开办了忠诚保证保险,这是保证保险的开端。

  信用保险由商业信用保险、出口信用保险、投资保险构成,是指权利人向保险人投保债务人的信用风险的一种保险。一战结束后,为了本国出口贸易的顺利进行,英国政府成立了出口信用担保局,并创立了一套完整的信用保险制度;1934年,英法意西四国的信用保险机构联合成立了“伯尔尼联盟”,一方面相互交流出口信用保险信息,一方面在追偿方面开展合作,这些是信用保险的滥觞。

  比较而言,我国的信用保证保险发展较晚。信用保险方面,1983年初,人保上海分公司对中行上海分行的一笔船舶买贷提供中长期信用险;1986年人保试办短期出口信用险;1988年,国务院正式决定由人保试办出口信用保险业务;1994年以后,我行也开始经办各种出口信用保险业务;2001年,中信保成立。保证保险方面,我国目前有多家保险公司开办,具体险种主要有国内工程履约保险、对外承包工程的投标、履约和供货保证保险、产品质赶保证保险、住房贷款保证保险、汽车贷款保旺保险、雇员忠诚保证保险等。

  信用保证保险下,信用保险与保证保险的区分

  两者的概念及相互关系曾经较为混乱。1997年中国人民银行《关于‘保证保险''业务的批复[2]》曾经将“保证保险”业务归为信用保险业务的门类之一。

  随后,两者的并列、同时作为财产保险子概念的关系逐步确立。2004年保监会的《保险公司管理规定》第47条规定,经保监会核定财保公司方可经营信用保险和保证保险,即已经将两者并列。之后的《保险法》第95条又将两者确立为财产保险的子概念。

  根据我国的保险理论,一般将被保险人根据权利人的要求,向保险公司要求担保自己信用的保险称为保证保险;将权利人要求保险公司担保被保证人信用的保险称为信用保险。保证保险主要包括履约保证保险和雇员忠诚保证保险,信用保险主要包括出口信用保险、投资保险、国内商业信用保险。

  从理论上讲,虽然信用保险和保证保险的保险标的均为被保险人的信用风险,但两者也有区别:

  1.投保人不相同。信用保险是保险人根据权利人的请求担保被保险人信用的保险;而保证保险是义务人自己根据权利人的要求,要求保险人担保自己信用的保险。

  2.按不同的社会和经济功能区分。信用保险被认为是对债务不履行损害的填补,以事后信用救济为目的;保证保险将保证保险化,以事前提供信用为目的。

  3.按照适用担保法还是保险法来区分。认为保证保险适用担保法而信用保险是纯粹的保险。

  4.综合考虑所承保的风险和投保人两个因素,加以区分。在《最高院关于审理保险纠纷案件若干问题的解释(征求意见稿)》中,信用风险被认为是“债权人”投保的“非正常商业信用风险”;保证保险被认为是“债务人”投保的“为保证合同债务履行”。[3]

  需要说明的是,以上为学者的理论探讨。实务中,以上区分点的逻辑是存在瑕疵的。针对第一点,国外的忠诚保证保险中雇主也可以投保;在我国的出口信用保险中,债务人也可以以贷款银行为受益人而投保。针对第二点,很难自圆其说。针对第三点,实务界素有争议,本文下一节也将重点探讨。但无论我国还是世界其他国家,均倾向于两者都适用保险法。针对第四点,该分类的缺点在于将“债务人”投保的“非正常商业风险”和“债权人”投保的“为保证合同债务履行”排除在外。

  因此,不得不说,信用保险和保证保险的名称分类中,语言习惯的因素很大程度上压过了法律逻辑。断然列出若干理由将两者从法律逻辑上分得泾渭分明是过于武断的。实务也多根据保险品种的名称区分而已,保险界同仁并无需探究两者法律上的性质。于是,至少自圆其说的通说形成以前,笔者还是建议多数场合下将两者合称信用保证保险为妥。

  信用保证保险与保证的区分

  信用保证保险的外延之争比较前文所述其内涵之争有过之而无不及,主要集中在信用保证保险和保证的外延区分上。信用保证保险是单纯的保险合同,亦或是一种保证合同,将产生不同的影响。

  第一,监管机构和金融牌照不同。如果是保险产品的一种,发行人应取得相关的产品准入并接受保监会的管理;如果是保证合同的一种,各种主体在法律法规没有禁止的情况下均可对外保证。第二,适用法律不同。保险合同适用保险法,保证合同适用担保法。第三,保险产品中有法律默示规定的最大诚信原则。第四,保险法明确将可保利益作为其基石,但担保法没有相关要求。第五,我国法律规定保证具有从属性[4],而保证保险的效力不受被保险债权的合同效力的影响[5]。第六,保证法律体系下有独特的诉讼时效和保证期间制度,与保险相关的时效问题显然不同。第七,承担责任的方式不同。保证合同的责任方式有一般保证责任和连带保证责任之分,而保险合同的保险人承担的是保险责任,只要约定的保险事故发生,保险人就应赔付要求承担赔偿责任。第八,如果将信用保证保险合同理解为保证合同,在同一基础债权上信用保证保险与其它物保并存时,根据物权法第176条,无约定或约定不明时,将区分是否由债务人提供了物保。如果以上情况下债务人同时提供了物保,债权人将无法向保险公司要求赔偿。如果将信用保证保险合同理解为保险合同,自然无此限制。

  探讨首先从理论界开始。不同领域学者的观点各不相同,保险界的学者多主张信用保证保险是一种保险,金融界的学者则多认为保证保险是担保。持“保证说”观点的学者认为:“保证保险合同实际属于保证合同的范畴,只不过采用了保险的形式,保证保险是一种由保险人开办的担保业务[6]”。持“保险说”的观点认为:“保证保险合同的法律性质区别于保证合同,并非担保方法[7]”,保证保险是“保险公司以‘保证’形式经营的一种新型保险业务,而不是以‘保险’形式经营的担保业务”[8]。

  在实务界,最高院对类似纠纷所作出的司法判例则显示出这两种观点在我国司法界的碰撞与融合。

  最高法院1998经终字第291号判决明确适用担保法[9]。“在保证保险中,义务人是投保人,义务人以保险公司为保证人,为自己的信用担保,在其信用发生危机的时候,由保险人来代位履行义务”;“基于该险种的特殊性,以普通财产保险的法律规定不能调整该险种所涉及的三方当事人之间形成的法律关系。所以,从其所形成的民事法律关系来看,更符合保证的法律特征”;“对这一关系应适用《中华人民共和国担保法》及相关的司法解释予以调整”。
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内蒙古自治区人民代表大会常务委员会关于修改部分地方性法规的决定(二)

内蒙古自治区人大常委会


内蒙古自治区人民代表大会常务委员会关于修改部分地方性法规的决定(二)


(2010年9月17日内蒙古自治区第十一届人民代表大会常务委员会第十七次会议通过)


  内蒙古自治区第十一届人民代表大会常务委员会第十七次会议,按照全国人大常委会对地方性法规清理工作的安排部署,决定修改自治区人大常委会制定的部分地方性法规:
  一、将下列地方性法规中的“征用”的规定修改为“征收”或者“征收、征用”
  1.《内蒙古自治区实施〈中华人民共和国土地管理法〉办法》第二十七条第一款和第三款、第二十九条第二项和第五项、第三十条、第三十一条、第三十二条、第三十三条中的“征用”修改为“征收”。
  2.《满洲里边境经济合作区管理条例》第七条第三项中的“征用”修改为“征收”。
  3.《内蒙古自治区农村牧区集体经济组织审计条例》第十条第六项中的“征用”修改为“征收、征用”。
  4.《内蒙古自治区嘎查村财务管理条例》第七条第八项、第八条第八项中的“征用”修改为“征收、征用”。
  5.《内蒙古自治区实施〈中华人民共和国村民委员会组织法〉办法》第十三条第五项的“征用”修改为“征收、征用”。
  二、对下列地方性法规中引用的“治安管理处罚条例”修改为“中华人民共和国治安管理处罚法”
  6.《内蒙古自治区信访条例》第二十九条。
  7.《内蒙古自治区水工程管理保护办法》第十五条第三款。
  8.《内蒙古自治区农牧民负担监督管理条例》第三十八条。
  9.《内蒙古自治区种畜禽管理条例》第三十二条。
  10.《内蒙古自治区基本草牧场保护条例》第三十五条。
  11.《内蒙古自治区文化市场管理条例》第四十七条。
  12.《内蒙古自治区建设工程质量管理条例》第四十九条。
  13.《内蒙古自治区城镇职工基本养老保险条例》第三十三条。
  14.《内蒙古自治区实施〈中华人民共和国标准化法〉办法》第三十一条。
  15.《内蒙古自治区锡林郭勒草原国家级自然保护区管理条例》第十六条。
  16.《内蒙古自治区实施〈中华人民共和国城市规划法〉办法》第四十一条。
  17.《内蒙古自治区环境保护条例》第四十三条。
  18.《内蒙古自治区食品摊贩和城乡集市贸易食品卫生管理条例》第十六条。
  19.《内蒙古自治区人民代表大会代表视察办法》第十八条。
  三、对下列地方性法规中引用的“行政复议条例”修改为“中华人民共和国行政复议法”
  20.《内蒙古自治区信访条例》第十五条。
  21.《内蒙古自治区农业环境保护条例》第三十五条。
  22.《内蒙古自治区实施〈中华人民共和国矿山安全法〉办法》第五十二条。
  23.《内蒙古自治区文化市场管理条例》第四十八条。
  本决定自公布之日起施行。


METROLOGY LAW OF THE PEOPLE'S REPUBLIC OF CHINA

The Standing Committee of the National People's Congress


METROLOGY LAW OF THE PEOPLE'S REPUBLIC OF CHINA

(Adopted at the 12th Meeting of the Standing Committee of the
Sixth National People's Congress, promulgated by Order No. 28 of the
President of the People's Republic of China on September 6, 1985, and
effective as of July 1, 1986)


Contents
Chapter I General Provisions
Chapter II Primary Standard Instruments of Measurement, Standard
Instruments of Measurement and Metrological Verification
Chapter III Administrative Control of Measuring Instruments
Chapter IV Metrological Supervision
Chapter V Legal Liability
Chapter VI Supplementary Provisions

Chapter I General Provisions
Article 1
This Law is formulated to strengthen the metrological supervision and
administration, to ensure the uniformity of the national system of units
of measurement and the accuracy and reliability of the values of
quantities, so as to contribute to the development of production, trade
and science and technology, to meet the needs of socialist modernization
and to safeguard the interests of the state and the people.
Article 2
Within the territory of the People's Republic of China, this Law must be
abided by in establishing national primary standards of measurement and
standards of measurement, in conducting metrological verification, and in
the manufacture, repair, sale or use of measuring instruments.
Article 3
The State shall adopt the International System of Units (SI).
The International System of Units and other units of measurement adopted
by the State shall be the national legal units of measurement. The names
and symbols of the national legal units of measurement shall be
promulgated by the State Council. Non-national legal units of measurement
shall be abrogated. Measures for the abrogation shall be stipulated by the
State Council.
Article 4
The metrological administrative department of the State Council shall
exercise unified supervision over and administration of metrological work
throughout the country. The metrological administrative departments of the
local people's governments at and above the county level shall exercise
supervision over and administration of metrological work within their
respective administrative areas.

Chapter II Primary Standards of Measurement, Standards of Measure- ment and Metrological Verification
Article 5
The metrological administrative department of the State Council shall be
responsible for establishing all kinds of primary standards of
measurement, which shall serve as the ultimate basis for unifying the
values of quantities of the country.
Article 6
The metrological administrative departments of the local people's
governments at or above the county level may, according to the needs of
their respective areas, establish public standards of measurement, which
shall be put into use after being checked and found to be qualified by the
metrological administrative department of the people's government at the
next higher level.
Article 7
The competent department concerned of the State Council and the competent
department concerned of the people's governments of the provinces,
autonomous regions, and municipalities directly under the Central
Government may, in light of their own specific needs, establish standards
of measurement for their own use. The ultimate standard of measurement of
each kind shall be put into use after being checked and found to be
qualified by the metrological administrative authorities of the people's
government at the corresponding level.
Article 8
Enterprises or institutions may, according to their needs, establish
standards of measurement for their own use. The ultimate standard of
measurement of each kind shall be put into use after being checked and
found to be qualified by the metrological administrative department of the
people's government concerned.
Article 9
The metrological administrative departments of the people's governments at
or above the county level shall make compulsory verification of the public
standards of measurement, the ultimate standards of measurement used in
the departments, enterprises and institutions as well as the working
measuring instruments used in settling trade accounts, safety protection,
medical and health work, or environmental monitoring that are listed in
the compulsory verification catalogue. Those measuring instruments which
have not been submitted for verification as required and those which have
been checked and found to be unqualified shall not be used. The catalogue
of the working measuring instruments subject to compulsory verification
and the measures for the administration of such instruments shall be
stipulated by the State Council.
Standards of measurement and working measuring instruments other than
those referred to in the preceding paragraph shall be verified at regular
intervals by the users themselves or by the metrological verification
institutions. The metrological administrative departments of the people's
governments at or above the county level shall supervise and inspect such
verification.
Article 10
Metrological verification shall be conducted according to the National
Metrological Verification System. The National Metrological Verification
System shall be worked out by the metrological administrative department
of the State Council. Metrological verification must be carried out in
accordance with the regulations governing metrological verification. The
national metrological verification regulations shall be formulated by the
metrological administrative department of the State Council. In the case
of certain instruments that are not covered in the national metrological
verification regulations, the competent departments of the State Council
and the metrological administrative departments of the people's
governments of provinces, autonomous regions, and municipalities directly
under the Central Government shall respectively formulate departmental and
local verification regulations. Such verification regulations shall be
submitted to the metrological administrative department of the State
Council for the record.
Article 11
Metrological verification shall, according to the principle of economy and
rationality, be carried out on the spot or in the vicinity.

Chapter III Administrative Control of Measuring Instruments
Article 12
An enterprise or institution which is to engage in manufacturing or
repairing measuring instruments must have facilities, personnel and
verification appliances appropriate to the measuring instruments it is to
manufacture or repair and, after being checked and considered as qualified
by the metrological administrative department of the people's government
at or above the county level, obtain a Licence for Manufacturing Measuring
Instruments or a License for Repairing Measuring Instruments.
The administrative departments for industry and commerce shall not issue a
business licence to an enterprise engaged in manufacturing or repairing
measuring instruments which has not obtained a Licence for Manufacturing
Measuring Instruments or a Licence for Repairing Measuring Instruments.
Article 13
When an enterprise or institution manufacturing measuring instruments
undertakes to manufacture new types of measuring instruments which it has
not previously manufactured, such measuring instruments may be put into
production only after the metrological performance of the sample products
has been checked and found to be qualified by the metrological
administrative department of a people's government at or above the
provincial level.
Article 14
Without the approval of the metrological administrative department of the
State Council, measuring instruments with non-legal units of measurement
which have been abrogated by the State Council, and other measuring
instruments which are banned by the State Council, shall not be
manufactured, sold or imported.
Article 15
An enterprise or institution engaged in manufacturing or repairing
measuring instruments must verify the measuring instruments it has
manufactured or repaired, guarantee the metrological performance of the
products and issue certificates of inspection for the qualified products.
The metrological administrative department of the people's governments at
or above the county level shall supervise and inspect the quality of the
measuring instruments manufactured or repaired.
Article 16
Measuring instruments imported from abroad may be sold only after having
been verified and found to be up to standard by the metrological
administrative department of the people's government at or above the
provincial level.
Article 17
When using measuring instruments, no person shall be allowed to impair
their accuracy, thereby prejudicing the interests of the State and
consumers.
Article 18
Self-employed workers or merchants may manufacture or repair simple
measuring instruments.
Any self-employed worker or merchant who is to engage in manufacturing or
repairing measuring instruments may apply for a business licence from the
administrative department for industry and commerce provided he has been
tested and found to be qualified by the metrological administrative
department of a people's government at the county level, and issued a
Licence for Manufacturing Measuring Instruments or a Licence for Repairing
Measuring Instruments.
The types of measuring instruments which can be manufactured or repaired
by self-employed workers or merchants shall be determined by the
metrological administrative department of the State Council, which shall
also adopt measures for their control.

Chapter IV Metrological Supervision
Article 19
The metrological administrative department of the people's governments at
or above the county level may, according to their needs, appoint
metrological supervisors. The measures for the administration of the
metrological supervisors shall be formulated by the metrological
administrative department of the State Council.
Article 20
The metrological administrative department of the people's governments at
or above the county level may, according to their needs, set up
metrological verification organs or authorize the metrological
verification institutions of other establishments to carry out compulsory
verification and other verification and testing tasks. The personnel
carrying out the tasks of verification and testing mentioned in the
preceding paragraph must be tested for their qualifications.
Article 21
Any dispute over the accuracy of measuring instruments shall be handled in
accordance with the data provided after verification with the national
primary standards of measurement or public standards of measurement.
Article 22
A product quality inspection agency which is to provide notarial data on
the quality of products for society must be checked for its capability and
reliability of metrological verification and testing by the metrological
administrative department of a people's government at or above the
provincial level.

Chapter V Legal Liability
Article 23
Whoever without a Licence for Manufactured Measuring Instruments or a
Licence for Repairing Measuring Instruments manufactures or repairs
measuring instruments shall be ordered to stop his production or business
operations. His unlawful income shall be confiscated and a fine may
concurrently be imposed.
Article 24
Whoever manufactures or sells a new type of measuring instrument which has
not been checked and found to be qualified shall be ordered to stop the
manufacture or sale of that new product. His unlawful income shall be
confiscated and he may concurrently be punished by a fine.
Article 25
Whoever manufactures, repairs or sells unqualified measuring instruments
shall have his unlawful income confiscated and a fine may concurrently be
imposed.
Article 26
Whoever uses measuring instruments subject to compulsory verification
without having filed an application for verification as required or
continues to use measuring instruments which have been checked but found
to be unqualified shall be ordered to stop the use and may concurrectly be
punished by a fine.
Article 27
Whoever uses unqualified measuring instruments or impairs the accuracy of
measuring instruments, thus causing losses to the State and consumers,
shall be ordered to make compensation for the losses and shall have his
measuring instruments and unlawful income confiscated and may concurrently
be punished by a fine.
Article 28
Whoever manufactures, sells or uses measuring instruments for the purpose
of deceiving consumers shall have his measuring instruments and unlawful
income confiscated and may concurrently be punished by a fine. If the
circumstances are serious, the individual or the person in the unit who is
directly responsible shall be investigated for his criminal responsibility
according to the crimes of swindling or speculation.
Article 29
When any individual or unit, in violation of the provisions of this Law,
manufactures, repairs or sells unqualified measuring instruments leading
to people's injury or death or causing major property losses, the
individual or the person in the unit who is directly responsible shall be
investigated for his criminal responsibility by reference to the
provisions of Article 187 of the Criminal Law.
Article 30
A metrological supervisor who transgresses the law and neglects his duty,
where the circumstances are serious, shall be investigated for criminal
responsibility pursuant to the relevant provisions of the Criminal Law. If
the circumstances are minor, he shall be given an administrative sanction.
Article 31
The administrative sanction provided for in this Law shall be determined
by the metrological administrative department of a people's government at
or above the county level. The administrative sanction provided for in
Article 27 of this Law may also be determined by the administrative
departments for industry and commerce.
Article 32
A party who refuses to accept the decision of the administrative sanction
may, within 15 days after receipt of the notification of the decision,
file suit in a people's court. If within that time limit the party does
not file suit or comply with the penalty of paying a fine and having his
unlawful income confiscated, the administrative authorities which have
made the decision of the administrative sanction may request the people's
court for compulsory execution.

Chapter VI Supplementary Provisions
Article 33
Measures for the administration of and supervision over metrological work
in the Chinese People's Liberation Army and in units under the
jurisdiction of the Commission on Science, Technology and Industry for
National Defence shall be formulated separately by the State Council and
the Central Military Commission in accordance with this Law.
Article 34
The metrological administrative department of the State Council shall, in
accordance with this Law, formulate rules for its implementation, which
shall go into effect after being submitted to and approved by the State
Council.
Article 35
This Law shall go into effect on July 1, 1986.





Important Notice:
This English document is coming from "LAWS AND REGULATIONS OF THE
PEOPLE'S REPUBLIC OF CHINA GOVERNING FOREIGN-RELATED MATTERS" (1991.7)
which is compiled by the Brueau of Legislative Affairs of the State
Council of the People's Republic of China, and is published by the China
Legal System Publishing House.
In case of discrepancy, the original version in Chinese shall prevail.