Guideline on Minimum Criteria for Authorization (2026-02-27)

Guidelines Email: [PROMPT_TEST:management-summary-v1] HKMA E-mail Alert of 02 March 2026 (05:00 p.m. HKT)

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Document Information

Title: Guideline on Minimum Criteria for Authorization (2026-02-27)

Type: Guidelines

URL: https://brdr.hkma.gov.hk/eng/doc-ldg/current/20260226-1-EN

Email Received: 2026-03-03 05:27

Summary Created: 2026-03-03 05:28

English Summary (11068 chars)
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Management Summary
  • Purpose / Background: This Guideline, issued under section 16(10) of the Banking Ordinance, details the Monetary Authority's (MA) interpretation of and approach to the licensing criteria set out in the Seventh Schedule of the Ordinance. It supersedes the previous version from July 2022. The MA has a general discretion to grant or refuse authorization, but must refuse if the specified criteria are not met.
  • Key Changes: This document updates the interpretation and application of existing licensing criteria. Specific details on changes are not explicitly highlighted but an updated version supersedes the previous one.
  • Key Dates: The previous version of this guideline was issued on 22 July 2022. The effective date for this updated version is not explicitly stated but it supersedes the prior one.
  • Impact on institutions: All authorized institutions must continuously meet these criteria. Failure to do so can lead to revocation of authorization. Applicants must demonstrate they meet all criteria, and the MA assesses this on a case-by-case basis.
  • Recommended management actions (3-7 bullets):
  • Review and understand the MA's interpretation of each licensing criterion in the Seventh Schedule.
  • Ensure all personnel (directors, senior management, controllers, executive officers) meet the 'fit and proper' test, with particular attention to probity, competence, and diligence.
  • Implement and maintain robust accounting systems and internal control frameworks as outlined in the Supervisory Policy Manual (SPM).
  • Verify that independent non-executive director requirements (e.g., one-third board representation for systemically important institutions) are met.
  • Ensure compliance with all disclosure requirements, including those under the Banking (Disclosure) Rules and LAC Rules for resolution entities.
  • Foster a strong culture of integrity, prudence, and competence in all business dealings, aligning with ethical standards and regulatory expectations.
  • Proactively engage with the MA regarding any proposed overseas operations or significant changes in business activities.
Detailed Summary
  1. Document overview
    This Guideline, issued under section 16(10) of the Banking Ordinance, provides the Monetary Authority's (MA) interpretation of the licensing criteria outlined in the Seventh Schedule to the Ordinance. It supersedes the prior Guideline on Minimum Criteria for Authorization from 22 July 2022. The MA has discretion to grant or refuse authorization but must refuse if any of the criteria in the Schedule are not met. The criteria are continuing, forward-looking, and apply to the institution as a whole.
  1. Main requirements (grouped by topic)
  • Adequacy of Home Supervision (Paragraph 2): Overseas incorporated applicants must be adequately supervised by their home supervisor. The MA assesses adequacy by considering the supervisor's powers, framework, resolution regime, resources, and international assessments (IMF, Basel Committee, FSB).
  • Identity of Controllers (Paragraph 3): The MA must know the identity of all controllers. "Controller" is defined to include indirect, minority shareholder (10% to 50% voting power), and majority shareholder (over 50% voting power) controllers.
  • Fitness and Propriety of Directors, Controllers, Chief Executives, and Executive Officers (Paragraphs 4 & 5):
  • Directors and Chief Executives: For Hong Kong incorporated institutions, the MA must approve directors and chief executives. For overseas incorporated institutions, the MA must be satisfied they are fit and proper, relying on home supervisor views.
  • Independent Non-Executive Directors: Licensed banks, systemically important RLBs/DTCs incorporated in Hong Kong require at least one-third of the board, or three members (whichever is higher), to be independent non-executive directors, with at least two having accounting, banking, or relevant financial industry backgrounds. Other RLBs/DTCs are strongly encouraged to appoint at least three independent non-executive directors, or at least one with relevant background.
  • Assessment Factors: Includes skills, knowledge, experience, judgment, diligence, probity (high integrity), reputation, criminal records, contraventions of legislation, involvement in company liquidations/investigations, financial soundness, business interests, and ability to devote sufficient time to duties.
  • Executive Officers: For regulated activities under the Securities and Futures Ordinance (SFO), executive officers must be registered with the SFC and approved by the MA. Assessment considers financial status, qualifications/experience, and reputation, character, reliability, integrity, honesty, and fairness, referencing SFC guidelines.
  • Controllers: The MA must be satisfied with the fitness and propriety of controllers. Assessment considers their influence on the institution, knowledge, experience, competence, judgment, diligence, probity, potential conflicts of interest, clarity of plans, financial soundness (to avoid contagion), and long-term commitment. Majority/minority shareholder controllers may need to provide letters of comfort for capital/liquidity support.
  • Adequacy of Accounting Systems and Controls (Paragraph 10): Institutions must maintain adequate accounting systems and controls for prudent operation, asset safeguarding, fraud minimization, risk monitoring, and compliance. Assessment considers the nature, scale, complexity, volume, structure, and geographical distribution of operations.
  • Resolution Planning: Adequate management information systems and control systems are expected to support bilateral resolution planning.
  • Internal Audit: An internal audit function appropriate for the institution's size, nature, scope, and complexity is required.
  • External Audit: External auditors provide assurance on prudential returns, controls, compliance with statutory provisions, and adequacy of provisions (for Hong Kong incorporated institutions). Ad hoc reports may be required on various internal control aspects.
  • Prevention of Money Laundering and Terrorist Financing: Institutions must maintain effective, risk-based internal controls. Assessment considers the applicant's home jurisdiction's standing with the Financial Action Task Force (FATF).
  • Regulated Activities: Senior management must understand regulated activities (securities, derivatives, insurance, MPF) and have comprehensive risk management systems. Segregation of duties between business units and risk/settlement functions is crucial. Institutions planning to operate as booking centres for derivatives must discuss plans with the MA. Wealth management/private banking businesses must record customer activities and positions in Hong Kong, ensuring MA access to necessary information.
  • Overseas Operations: Institutions incorporating in Hong Kong proposing overseas operations require MA approval. Assessment covers financial capacity, parent bank control, and adequacy of internal controls for the overseas operation.
  • Adequate Disclosure of Information (Paragraph 11): Hong Kong incorporated institutions must disclose adequate information about their affairs, including profit and loss and financial resources, in their annual accounts. The Banking (Disclosure) Rules set minimum standards. Overseas incorporated institutions are also expected to make adequate financial disclosures. Resolution entities and material subsidiaries must comply with LAC Rules for loss-absorbing capacity disclosures.
  • Business Conducted with Integrity, Prudence, and Competence (Paragraph 12): Business must be conducted with integrity, prudence, and competence, and not be detrimental to depositors' interests.
  • Prudence and Competence Assessment: Considers strategy, planning ability, track record, resistance to fraud/operational errors, reputation, risk governance, compliance culture, staff quality, and computer systems. The MA also considers the feasibility and credibility of orderly failure handling.
  • Integrity: Refers to high ethical standards, sound corporate culture, and compliance with laws and regulations. Contraventions of laws protecting the public against financial loss due to dishonesty, incompetence, or malpractice are critical.
  • Compliance Culture: Institutions must build a strong compliance culture, deal openly with regulators, and provide timely and accurate information.
  1. Key changes (vs previous requirements)
    This guideline supersedes the previous version issued on 22 July 2022. Specific details on changes from the prior version are not itemized within this document, but it represents an update to the MA's interpretation and application of the licensing criteria.
  1. Important dates & transition
    The previous version of this Guideline was issued on 22 July 2022. This updated Guideline supersedes the previous one. No specific effective date is mentioned for this new version, but it implies immediate effect.
  1. Applicability & impact scope
    This Guideline applies to all applicants seeking authorization as authorized institutions under the Banking Ordinance and to all existing authorized institutions as the criteria are continuing in nature.
  1. Compliance action checklist (practical steps)
  • Review and Understand: Thoroughly review the updated Guideline to understand the MA's current interpretation of each licensing criterion.
  • Personnel Assessment: Conduct comprehensive fitness and propriety assessments for all directors, chief executives, executive officers, and controllers, paying close attention to probity, competence, and diligence.
  • Governance & Control Review: Assess and enhance accounting systems, internal controls, and risk management frameworks to align with the MA's expectations outlined in the Supervisory Policy Manual (SPM).
  • Board Composition: Ensure compliance with requirements for independent non-executive directors, particularly for systemically important institutions.
  • Disclosure Compliance: Verify adherence to all public disclosure requirements, including those under the Banking (Disclosure) Rules and LAC Rules.
  • Business Conduct & Ethics: Reinforce a culture of integrity, prudence, and competence in all business operations and ensure adherence to ethical standards.
  • Regulatory Engagement: Maintain open and cooperative communication with the MA and other relevant regulators, ensuring timely and accurate reporting.
  • Overseas Operations Planning: If applicable, consult with the MA in advance regarding any plans for establishing overseas operations.
  1. Attachments/appendices note (if any, 1-3 lines only)
    This document references various modules within the Supervisory Policy Manual (SPM) and specific circulars for detailed guidance on corporate governance, risk management, internal controls, and disclosure rules.
中文摘要 (4254 chars)
快速切換摘要區塊
管理層摘要
  • 目的/背景： 本指南旨在闡述香港金融管理局（HKMA）在解釋《銀行業條例》下的授權準則時的執行方式。該準則適用於申請授權的機構，並確保其持續符合監管要求。本指南取代了2022年7月22日發布的舊版指南。
  • 關鍵變化： 本指南較舊版增加了對獨立非執行董事的要求（對於系統重要性機構，董事會三分之一或三人，以較高者為準；對於非系統重要性機構，強烈鼓勵至少三名獨立非執行董事），並更新了對監管機構、董事、高管、控股股東及監管活動的評估標準。
  • 關鍵日期： 本指南自發布之日起生效，取代了舊版指南。
  • 對機構影響：
  • 需確保董事會結構符合獨立非執行董事的比例要求。
  • 需重新審視並確保所有董事、高級管理人員、執行主管及控股股東符合「適當人選」標準。
  • 需確保內部控制、風險管理、反洗錢及反恐融資等系統滿足不斷更新的監管期望。
  • 對於從事特定受規管業務（如證券、衍生品交易）的機構，需加強風險管理和合規控制。
  • 管理層建議行動：
  1. 審查並更新公司章程及內部政策，以符合獨立非執行董事的要求。
  2. 全面評估現有董事、高級管理層、執行主管及主要股東的「適當人選」資格。
  3. 加強內部培訓，確保所有相關人員理解並遵守本指南的規定。
  4. 檢視並更新內部控制、風險管理、反洗錢及反恐融資等相關系統與程序。
  5. 針對從事受規管活動的業務單位，強化風險管理與合規監控。
  6. 與法務及合規部門密切合作，確保所有營運行為符合監管要求。
  7. 定期監測監管動態，以便及時調整內部政策與實務。
詳細摘要
  1. 文檔概述
    本《授權最低準則指引》由香港金融管理局（HKMA）根據《銀行業條例》第16(10)條發布，旨在闡明HKMA將如何詮釋《銀行業條例》第七附表所載的授權準則，以及如何行使其法定職能。本指引取代了2022年7月22日頒布的舊版指引。
  1. 主要內容與要求
  • 授權準則的性質： 準則具有持續性，適用於機構獲授權當時及其後。不符合準則可能導致授權被撤銷。準則具有前瞻性，HKMA會考慮機構過去的表現、管理層質素、內部控制系統、業務計劃及財務預測。準則適用於機構整體，包括海外機構的母公司。
  • 家鄉監管的充足性（第2段）： 對於在香港境外註冊的申請人，必須是由相關銀行監管機構（通常是註冊地監管機構）認為得到充分監管的「銀行」。HKMA將評估家鄉監管機構是否具備符合巴塞爾標準（特別是合併監管）的必要能力，考量因素包括法律權力、監管框架、銀行處置機制、監管方法與資源，以及國際組織的評估報告（如IMF、Basel Committee、FSB）。
  • 控股股東身份（第3段）： HKMA必須獲悉機構每一位「控股股東」的身份。控股股東定義包括：間接控股股東、少數股東控股股東（單獨或與聯繫人持有10%-50%投票權）、及多數股東控股股東（單獨或與聯繫人持有超過50%投票權）。
  • 董事、控股股東、首席執行官及執行官的適當人選（第4及5段）： HKMA必須確信機構的董事、首席執行官、執行官及控股股東皆為「適當人選」。
  • 董事與首席執行官： 對在港註冊的授權機構，董事及首席執行官（及其替任人）需經HKMA根據《銀行業條例》第71條批准。對於註冊於海外的機構，其在港業務的首席執行官亦需批准。
  • 獨立非執行董事要求：
  • 對於在港註冊的持牌銀行、限制牌照銀行（RLBs）及存款公司（DTCs），若被指定為系統重要性機構，則董事會中至少三分之一成員或三名成員（以較高者為準）須為獨立非執行董事，其中至少兩名須具備會計、銀行或其他相關金融行業背景。
  • 對於非系統重要性的RLBs和DTCs，則強烈鼓勵任命至少三名獨立非執行董事，且董事會中應包含適當數量的獨立或至少非執行董事。其中至少一名獨立非執行董事須具備會計、銀行或其他相關金融行業背景。
  • 適當人選評估標準： 考慮因素包括個人能力、知識、經驗、判斷力、勤勉度、聲譽、品格、遵守法規記錄、業務記錄、財務穩健性等。特別強調誠信，並會考量過往因不當行為被監管機構處罰的記錄。
  • 執行官： 對於從事受規管活動的註冊機構，需任命至少兩名執行官負責監督，且這些執行官必須獲HKMA根據《銀行業條例》第71C條同意。評估標準與SFO及SFC的「適當人選」指引一致，包括財務狀況、資歷經驗、勝任能力、聲譽、品格、誠信、可靠性等。
  • 控股股東： HKMA需確定控股股東是「適當人選」。評估標準取決於其對機構的影響力，影響力越大，要求越高。會考慮其業務計劃、聲譽、財務狀況、長期承諾及資本/流動性支持意願。
  • 貸款質量與撥備充足性（第9段）： HKMA要求機構維持足夠的會計系統和內部控制系統，以確保業務的審慎高效運行、資產安全、降低欺詐風險、監控風險及遵守監管要求。會考量業務性質、規模、複雜度、交易量、組織結構和地理分佈。
  • 會計系統與控制系統的充足性（第10段）： HKMA要求機構具備充足的會計系統和內部控制系統，以支持雙邊處置計劃，並在機構失敗時有序處置。
  • 內部審計： 鼓勵機構設立獨立、客觀的內部審計功能，以評估系統和控制的狀況。
  • 外部審計： 授權機構的會計系統和內部控制系統需由HKMA檢查員或外部審計師評估。外部審計報告需涵蓋財務回報準確性、編製控制、法規遵從性及撥備維持控制等。
  • 防止洗錢及恐怖融資： HKMA高度重視有效的風險管理內部控制，以打擊洗錢和恐怖融資。將評估申請機構的家鄉司法管轄區是否被FATF列為需要採取預防措施的地區。
  • 受規管活動： 對於從事證券、衍生品、保險或強積金中介活動的機構，高級管理層需充分理解相關活動，並設有全面的風險管理系統。特別強調業務部門與風險管理及結算職能之間的職責劃分。
  • 海外業務： 在港註冊的授權機構擬設立海外分支、代表處或附屬公司，需事先獲得HKMA批准，並證明其母銀行的財務能力、對海外業務的管理控制能力及海外業務的內部控制系統。
  • 海外註冊機構： HKMA在評估海外註冊機構的會計記錄和控制系統時，將參考家鄉監管機構的意見。
  • 信息披露要求（第11段）： 在港註冊的機構，須在其經審計的年度賬目和其他年度報告中，披露足夠的營運狀況信息，包括損益、財務資源（資本和流動性）。《銀行業（披露）規則》設定了最低披露標準，適用於大多數機構。
  • 以誠信、審慎和能力開展業務（第12段）： HKMA必須確信機構的業務（包括非銀行業務和存款業務）是持續以誠信、審慎和適當的專業能力開展，且不損害存戶或潛在存戶的利益。考量因素包括機構的戰略、規劃能力、應對外部衝擊能力、抵禦欺詐能力、聲譽、風險治理與合規文化、員工和管理層質素，以及電腦系統的質量。
  1. 關鍵變化
  • 獨立非執行董事的具體比例要求： 明確規定系統重要性機構董事會中獨立非執行董事的最低比例（三分之一或三人，取較高者），並對非系統重要性機構提出強烈建議。
  • 評估標準的細化： 對董事、高管、控股股東的「適當人選」評估標準進行了更詳細的闡述，特別是在品格、聲譽、合規記錄、風險管理能力等方面。
  • 對海外機構的監管關注： 強調對海外機構的家鄉監管機構的評估，並納入其處置機制、與國際組織的合作情況等。
  • 科技和數據應用的強調： 儘管未單獨成段，但《銀行業條例》的相關條文（如涉及電腦系統、內部控制、風險管理）以及HKMA的其他指引（如《風險管理框架》）均體現了對科技和數據在風險管理和內部控制中作用的日益重視。
  1. 重要日期與過渡安排
    本指引自發布之日起生效，取代舊版指引，未明確提及特定過渡期。
  1. 影響範圍與適用對象
    本指引適用於所有申請成為授權機構（包括持牌銀行、限制牌照銀行和存款公司）的實體，以及現有的授權機構在遵守持續性要求方面。
  1. 合規動作清單
  • 董事會結構審核： 檢視現有董事會成員構成，確定是否符合獨立非執行董事的數量和背景要求，並在必要時啟動董事會重組或增聘。
  • 「適當人選」審核： 全面評估所有擬議及現任的董事、首席執行官、執行官、控股股東，確保其符合《銀行業條例》及本指引的「適當人選」標準，並備妥相關證明文件。
  • 內部控制與風險管理系統評估： 審查和更新現有的內部控制、風險管理、反洗錢及反恐融資系統，確保其充分、有效並與業務規模及複雜度相匹配。
  • 文件與記錄保存： 確保所有與授權申請相關的申請文件、內部政策、審核報告、合規記錄等均準確、完整並妥善保管。
  • 法規遵從培訓： 為相關人員提供關於本指引及《銀行業條例》相關要求的培訓，加強其對監管規定的理解。
  • 與監管機構溝通： 與HKMA保持密切溝通，及時向其匯報在遵守本指引過程中遇到的任何問題或已採取的措施。
  • 應對海外業務監管： 若涉及海外業務，需確保其符合HKMA對海外業務的監管要求。
  1. 附件/附錄概述
    本文件正文詳細闡述了HKMA在詮釋《銀行業條例》下的授權準則。文件中提及了《銀行業條例》第七附表、監管政策手冊（SPM）中的多個模塊（如CG-1, IC-1, IC-2, IC-3, CA-D-1, CR-G-5, CG-4, CR-G-14, CG-6）及相關通函，這些構成了HKMA更詳細的監管期望與實務指引。