腐败资产跨境追回问题研究
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摘要
腐败犯罪作为权钱交易的极端表现形式,由来已久。随着经济全球化日益发展,国家对经济、社会控制减弱,腐败犯罪呈全球化、国际化趋势,跨国性、涉外性特征明显,与此相对应的是腐败官员外逃及腐败资产跨境转移。腐败官员潜逃境外或人在境内,通过洗钱、现金走私等方式将腐败资产转移至境外,则成为一些腐败官员的惯用手法。如根据相关研究报告,上世纪90年代中期以来,外逃腐败官员高达16000人至18000人,携带款项达8000亿元人民币。腐败资产跨境转移导致腐败资产全部或部分不能通过现有渠道予以追回,造成国家利益及经济受到损害,刑罚的惩罚功能弱化,诱发和加剧国内矛盾,为民众所诟病。因此,国际范围内,腐败资产跨境转移引起高度重视,腐败资产流出国通过国际或区际司法协助与合作,积极探索与运用各种方法,追回或返还部分被跨境转移的腐败资产。但相较于跨境转移的腐败资产数量,成功追回的比例很小,总体而言,跨境资产追回成效不大。本学位论文以腐败资产跨境追回相关问题为分析对象,其研究目的就是通过探讨腐败资产跨境转移及跨境追回的概况,分析《联合国反腐败公约》框架下腐败资产追回机制的运行及其效果,以及我国在腐败资产跨境追回方面所面临的障碍,在此基础上提出相应的立法对策,并积极地、最大化地实现多种追回措施配合的价值。
国外及我国大陆、港澳台地区皆存在较为猖獗的腐败资产跨境转移现象,严重危害政治生活、经济运行及法制原则,对此,世界范围内各个国家与地区积极采取各种应对措施,我国在借助传统性追回途径的基础上,探索策略性追赃等创新性途径。以联合国为主导的《联合国反腐败公约》应运而生,对腐败资产追回机制作出详细的规定,其中直接追回机制重视民事诉讼手段的运用,采取民事确权诉讼、民事侵权诉讼及简易返还的运行模式;而间接追回机制则主要采取民事没收与刑事没收,重视没收的国际合作,主要涉及没收地点的选择、举证责任及证明标准等问题。在腐败资产跨境追回中面临一系列障碍,既有腐败资产跨境追回中的一般性障碍,即国际范围内腐败资产跨境追回的普遍性问题,也有腐败资产追回机制运行中的具体性障碍,更重要的是我国腐败资产跨境追回配套立法的不完善,如主权豁免原则例外制度的缺乏、刑事没收立法的不完善、民事没收立法的缺位以及没收国际司法合作的立法缺陷。因此,为顺利追回跨境转移的腐败资产,最为重要的是要完善腐败资产跨境追回的配套立法,具体而言,要建立运用民事确权诉讼、民事赔偿诉讼及简易返还手段追回腐败资产的制度,要在扩大刑事没收范围、规范没收前保全措施适用及加强善意第三人合法权利保护等方面完善刑事没收制度,要针对腐败犯罪主体死亡、潜逃或者缺席等情形建立民事没收制度,要建立承认与执行外国没收裁决的司法审查机制并完善向外国请求协助没收财产的立法。在腐败资产返还与处分方面要明确腐败资产分享制度的构建方式及具体内容,如分享资产的适用情形、范围、具体程序、比例与方式等。在腐败资产跨境追回的具体操作中,要重视多种措施的配合使用,并最大化地追求配合后产生的价值,如重视基础性措施、灵活性措施及策略性措施的运用,强化腐败资产追回的保障性措施。
本学位论文具有一定的创新性,阐述了一些新观点。如建议在腐败资产跨境追回中,要重视民事诉讼的运用。政府在境外提起民事诉讼时,要通过创设国资委、专门基金会等“法人手段”,由其代替政府作为诉讼主体,以避免政府作为诉讼主体所引发的主权豁免方面的问题;主张借鉴美国、英国、新加坡等国家关于民事没收的立法经验,建立我国的民事没收制度;主张在界定没收裁决范围的基础上建立承认与执行外国没收裁决的司法审查机制;建议通过完善国内立法、缔结双边协议及个案合作等方式,构建腐败资产分享制度,设立被没收腐败资产基金以解决腐败资产跨境追回中的追回资产保存、追回耗费资金等问题;主张在腐败资产跨境追回中,要注重灵活性,如灵活地处理资产分享事宜,有效运用不判处死刑承诺,追求量刑磋商的价值。还要讲究策略,如发挥外逃腐败官员追逃在资产追回中的作用,在运用民事诉讼追回腐败资产中要重视与刑事诉讼相结合使用,并注重以指控洗钱犯罪为资产跨境追回的切入点。这些观点有助于我国拓宽思路,创新措施,争取腐败资产跨境追回的最大化效果。本学位论文从选题、收集资料、提纲组织、开始写作、多次修改到论文成稿,历时六年半之久,期间,腐败官员外逃及资产跨境转移现象履有发生,但国际社会对这个问题的认识与看法渐趋一致,反腐败国际合作的氛围也趋于良好,一批潜逃境外多年的腐败官员或涉及腐败犯罪的其他人员也陆续引渡或遣返回国,因此,笔者既深感研究腐败犯罪资产跨境追回这个主题的重要性、紧迫性,也对通过研究这个主题在实践中推动腐败资产跨境追回的进一步开展持有积极、乐观的态度,而正是这种态度,引导笔者在论文写作过程始终保持旺盛的精力及高昂的斗志。
Corruption crime has a long history as an extreme form of power-for-money deal. With the development of economic globalization, and the weakening national control of economy, society, corruption crime tends to have globalization and internationalization. Its characteristic of transnational, foreign-related is obvious, and the corresponding is a flight of corrupt officials abroad and the cross-border transferring of corrupt assets. Corrupt officials fled abroad or in domestic, transferred corruption assets abroad by money laundering, cash smuggling and so on,which is in common use. For example, according to related reports, since 90s of 20 century, the number of corrupt officials that fled aboroad is as high as sixteen thousand, and the amount of money reached eight hundred billions RMB. The cross-border transferring of corrupt assets results that the whole or part of that corrupt assets cannot be recovered by the existing channels, resulting in the inational interests and economic damage, weakening the penalty punishment function, induce and exacerbate internal contradictions, as the public criticismed. Therefore, the cross-border transferring of corrupt assets is highly regarded in the international scope, the outflow of corrupt assets through international and inter-regional judicial assistance and cooperation, explore and use a variety of methods actively, to recover or return parts of the cross-border transfer of corrupt assets. But comparing the amount of cross-border transferred corrupt assets,the ratio of successful recoverty is low, and the recovery of cross-border asset is not effective overall. This thesis, taking the related issues about the recovery of cross-border corrupt assets as the object of analysis, the purpose of the study is to investigate corruption assets through cross-border transfer and recovery profiles, analysis the operation about the rocovery mechanism of corrupt assets under the framework of " the United Nations Convention against Corruption" , as well as the recovery obstacle of the corrupt assets in our country, put forward legislative measures of the rocovery of corrupt assets based on what mentioned before, and achieve maximum value with a variety of recovery measures actively.
In Foreign and Mainland Chinese, Hong Kong, Macao and Taiwan regions, there are more rampant phenomena of the cross-border transfer of corrupt assets, which is harmful to the political life, economy and legal principle seriously. The recovery mechanism of corrupt assets came into being by the " United Nations Convention against Corruption", and the direct-recovery mechanisms pays attention to the application of civil litigation means, while the indirect recovery mechanism mainly involves the application of civil forfeiture and criminal forfeiture. It faces a series of obstacles in the recovery of corrupt assets, not only the general obstacles, but also specific obstacles, the more important is that the recovery legislation of corrupt assets is not perfect, such as the lack of exception system about the principle of sovereign immunity, the imperfect legislation of criminal forfeiture, the absence of legislation of civil forfeiture and the legislative shortcomings of international judicial cooperation. Therefore, for the successful recovery of cross-border transfers of corrupt assets, the most important is to perfect the supporting legislation of the recovery of corrupt assets, specifically, establish the system to recover corrupt assets by the use of civil litigation, compensation litigation and simple return means, to perfect the criminal confiscation system, establish the civil forfeiture system as well as approve and enforce the foreign confiscation decision mechanism for judicial review, should clear the way to build asset-sharing system and the specific contents of the return and punishment in corrupt assets. In the specific operation about the recovery of corrupt assets, it should pay attention to a variety of measures with the coordinate use, and maximize the value from the pursuit of cooperation, such as the emphasis on the use of basic measures, flexibility measures and strategic measures, strengthen protection measures in recovering the corrupt assets.
The thesis brings forth many new ideas.For example,it proposals attach importance to use of civil lawsuit in cross-border recovery of corrupt assets.In such civil lawsuit,we should build National Assets Committee and Specilized Fund,which substitites for government as main body of lawsuit and avoids troubles of sovereignty-exempting triggered by govermment as main body of lawsuit.It suggests we build our system of civil expropriation,taking example by legislation exprerience about civil expropriation of America,England and Singapore. It suggests we establish the mechanism of judicial investigation admitting and carring out foreign expropriation verdict on the bisis of defining expropriation verdict.It suggests we establish asset-sharing system by improving domestic legislation,concluding bilateral agreements and cooperating on individual case and so on,set up Fund of expropriated corrupt assets to solve asset-keeping and expenditure of recoveried assets.It proposals we should lay emphasis on flexibility in dealing with recovery of corrupt assets,such as dealing with assets-sharing flexbly,utilizing acceptance of non-sentence of death penalty and pursing the value of verdict-consulting.We should also pay great attention to tactics,such as expressing effect of chasing those corrupt officials who fleed abroad,combining application of civil and criminal lawsuit,and taking accusion crime of money-laundering as entrance of cross-border recovery of corrupt assets. The above viewpoints contribute to broaden train of thought,innovate measures and strive for maximal effect.The thesis costs me 6.5 years from selecting theme,collecting data,organizing syllabus,commencing writing,amendding repeatedly,to finishing initial manuscript.During the time,the phenomena of cross-border personnel escape and transferring of corrupt assets appear time after time.However,the perspectives of international world about this question tend towards accordance and the atmosphere of international cooperation on anti-corruption also tends towards favorable.Some corrupt officals and other peasons invoved in corrupt crimes who fled abroad for many years have been extradited home.Theirfore, I am aware of the importance and urgency of studing this theme,and keep positive,optimistic attitude about promoting more steps on cross-border recovery through studing.And during writing,such an attitude leads me keep vigorous energy and high fighting will from beginning to end.
国外及我国大陆、港澳台地区皆存在较为猖獗的腐败资产跨境转移现象,严重危害政治生活、经济运行及法制原则,对此,世界范围内各个国家与地区积极采取各种应对措施,我国在借助传统性追回途径的基础上,探索策略性追赃等创新性途径。以联合国为主导的《联合国反腐败公约》应运而生,对腐败资产追回机制作出详细的规定,其中直接追回机制重视民事诉讼手段的运用,采取民事确权诉讼、民事侵权诉讼及简易返还的运行模式;而间接追回机制则主要采取民事没收与刑事没收,重视没收的国际合作,主要涉及没收地点的选择、举证责任及证明标准等问题。在腐败资产跨境追回中面临一系列障碍,既有腐败资产跨境追回中的一般性障碍,即国际范围内腐败资产跨境追回的普遍性问题,也有腐败资产追回机制运行中的具体性障碍,更重要的是我国腐败资产跨境追回配套立法的不完善,如主权豁免原则例外制度的缺乏、刑事没收立法的不完善、民事没收立法的缺位以及没收国际司法合作的立法缺陷。因此,为顺利追回跨境转移的腐败资产,最为重要的是要完善腐败资产跨境追回的配套立法,具体而言,要建立运用民事确权诉讼、民事赔偿诉讼及简易返还手段追回腐败资产的制度,要在扩大刑事没收范围、规范没收前保全措施适用及加强善意第三人合法权利保护等方面完善刑事没收制度,要针对腐败犯罪主体死亡、潜逃或者缺席等情形建立民事没收制度,要建立承认与执行外国没收裁决的司法审查机制并完善向外国请求协助没收财产的立法。在腐败资产返还与处分方面要明确腐败资产分享制度的构建方式及具体内容,如分享资产的适用情形、范围、具体程序、比例与方式等。在腐败资产跨境追回的具体操作中,要重视多种措施的配合使用,并最大化地追求配合后产生的价值,如重视基础性措施、灵活性措施及策略性措施的运用,强化腐败资产追回的保障性措施。
本学位论文具有一定的创新性,阐述了一些新观点。如建议在腐败资产跨境追回中,要重视民事诉讼的运用。政府在境外提起民事诉讼时,要通过创设国资委、专门基金会等“法人手段”,由其代替政府作为诉讼主体,以避免政府作为诉讼主体所引发的主权豁免方面的问题;主张借鉴美国、英国、新加坡等国家关于民事没收的立法经验,建立我国的民事没收制度;主张在界定没收裁决范围的基础上建立承认与执行外国没收裁决的司法审查机制;建议通过完善国内立法、缔结双边协议及个案合作等方式,构建腐败资产分享制度,设立被没收腐败资产基金以解决腐败资产跨境追回中的追回资产保存、追回耗费资金等问题;主张在腐败资产跨境追回中,要注重灵活性,如灵活地处理资产分享事宜,有效运用不判处死刑承诺,追求量刑磋商的价值。还要讲究策略,如发挥外逃腐败官员追逃在资产追回中的作用,在运用民事诉讼追回腐败资产中要重视与刑事诉讼相结合使用,并注重以指控洗钱犯罪为资产跨境追回的切入点。这些观点有助于我国拓宽思路,创新措施,争取腐败资产跨境追回的最大化效果。本学位论文从选题、收集资料、提纲组织、开始写作、多次修改到论文成稿,历时六年半之久,期间,腐败官员外逃及资产跨境转移现象履有发生,但国际社会对这个问题的认识与看法渐趋一致,反腐败国际合作的氛围也趋于良好,一批潜逃境外多年的腐败官员或涉及腐败犯罪的其他人员也陆续引渡或遣返回国,因此,笔者既深感研究腐败犯罪资产跨境追回这个主题的重要性、紧迫性,也对通过研究这个主题在实践中推动腐败资产跨境追回的进一步开展持有积极、乐观的态度,而正是这种态度,引导笔者在论文写作过程始终保持旺盛的精力及高昂的斗志。
Corruption crime has a long history as an extreme form of power-for-money deal. With the development of economic globalization, and the weakening national control of economy, society, corruption crime tends to have globalization and internationalization. Its characteristic of transnational, foreign-related is obvious, and the corresponding is a flight of corrupt officials abroad and the cross-border transferring of corrupt assets. Corrupt officials fled abroad or in domestic, transferred corruption assets abroad by money laundering, cash smuggling and so on,which is in common use. For example, according to related reports, since 90s of 20 century, the number of corrupt officials that fled aboroad is as high as sixteen thousand, and the amount of money reached eight hundred billions RMB. The cross-border transferring of corrupt assets results that the whole or part of that corrupt assets cannot be recovered by the existing channels, resulting in the inational interests and economic damage, weakening the penalty punishment function, induce and exacerbate internal contradictions, as the public criticismed. Therefore, the cross-border transferring of corrupt assets is highly regarded in the international scope, the outflow of corrupt assets through international and inter-regional judicial assistance and cooperation, explore and use a variety of methods actively, to recover or return parts of the cross-border transfer of corrupt assets. But comparing the amount of cross-border transferred corrupt assets,the ratio of successful recoverty is low, and the recovery of cross-border asset is not effective overall. This thesis, taking the related issues about the recovery of cross-border corrupt assets as the object of analysis, the purpose of the study is to investigate corruption assets through cross-border transfer and recovery profiles, analysis the operation about the rocovery mechanism of corrupt assets under the framework of " the United Nations Convention against Corruption" , as well as the recovery obstacle of the corrupt assets in our country, put forward legislative measures of the rocovery of corrupt assets based on what mentioned before, and achieve maximum value with a variety of recovery measures actively.
In Foreign and Mainland Chinese, Hong Kong, Macao and Taiwan regions, there are more rampant phenomena of the cross-border transfer of corrupt assets, which is harmful to the political life, economy and legal principle seriously. The recovery mechanism of corrupt assets came into being by the " United Nations Convention against Corruption", and the direct-recovery mechanisms pays attention to the application of civil litigation means, while the indirect recovery mechanism mainly involves the application of civil forfeiture and criminal forfeiture. It faces a series of obstacles in the recovery of corrupt assets, not only the general obstacles, but also specific obstacles, the more important is that the recovery legislation of corrupt assets is not perfect, such as the lack of exception system about the principle of sovereign immunity, the imperfect legislation of criminal forfeiture, the absence of legislation of civil forfeiture and the legislative shortcomings of international judicial cooperation. Therefore, for the successful recovery of cross-border transfers of corrupt assets, the most important is to perfect the supporting legislation of the recovery of corrupt assets, specifically, establish the system to recover corrupt assets by the use of civil litigation, compensation litigation and simple return means, to perfect the criminal confiscation system, establish the civil forfeiture system as well as approve and enforce the foreign confiscation decision mechanism for judicial review, should clear the way to build asset-sharing system and the specific contents of the return and punishment in corrupt assets. In the specific operation about the recovery of corrupt assets, it should pay attention to a variety of measures with the coordinate use, and maximize the value from the pursuit of cooperation, such as the emphasis on the use of basic measures, flexibility measures and strategic measures, strengthen protection measures in recovering the corrupt assets.
The thesis brings forth many new ideas.For example,it proposals attach importance to use of civil lawsuit in cross-border recovery of corrupt assets.In such civil lawsuit,we should build National Assets Committee and Specilized Fund,which substitites for government as main body of lawsuit and avoids troubles of sovereignty-exempting triggered by govermment as main body of lawsuit.It suggests we build our system of civil expropriation,taking example by legislation exprerience about civil expropriation of America,England and Singapore. It suggests we establish the mechanism of judicial investigation admitting and carring out foreign expropriation verdict on the bisis of defining expropriation verdict.It suggests we establish asset-sharing system by improving domestic legislation,concluding bilateral agreements and cooperating on individual case and so on,set up Fund of expropriated corrupt assets to solve asset-keeping and expenditure of recoveried assets.It proposals we should lay emphasis on flexibility in dealing with recovery of corrupt assets,such as dealing with assets-sharing flexbly,utilizing acceptance of non-sentence of death penalty and pursing the value of verdict-consulting.We should also pay great attention to tactics,such as expressing effect of chasing those corrupt officials who fleed abroad,combining application of civil and criminal lawsuit,and taking accusion crime of money-laundering as entrance of cross-border recovery of corrupt assets. The above viewpoints contribute to broaden train of thought,innovate measures and strive for maximal effect.The thesis costs me 6.5 years from selecting theme,collecting data,organizing syllabus,commencing writing,amendding repeatedly,to finishing initial manuscript.During the time,the phenomena of cross-border personnel escape and transferring of corrupt assets appear time after time.However,the perspectives of international world about this question tend towards accordance and the atmosphere of international cooperation on anti-corruption also tends towards favorable.Some corrupt officals and other peasons invoved in corrupt crimes who fled abroad for many years have been extradited home.Theirfore, I am aware of the importance and urgency of studing this theme,and keep positive,optimistic attitude about promoting more steps on cross-border recovery through studing.And during writing,such an attitude leads me keep vigorous energy and high fighting will from beginning to end.
引文
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