外资安全审查制度的中美比较——以美国外资安全审查中的“受管辖交易”新规为例  

Comparison of Foreign Investment National Security Review Systems in China and the U.S.——Taking ’Covered Transaction’ Rule in the U.S. National Security Review for Foreign Investment as an Example

作　　者：张潆之 ZHANG Yingzhi

机构地区：[1]中央财经大学法学院,北京100081

出　　处：《决策与信息》2023年第2期32-42,共11页Decision & Information

基　　金：2022年度中国市场监督管理学会课题“商事制度改革效果动态评估”(编号:横20220106)阶段性成果。

摘　　要：对影响或者可能影响国家安全的外商投资进行安全审查,是国际通行做法。外资安审制度最早源于美国,其完备的制度体系在全球范围内产生了示范效应。尤其是2018年通过的《外国投资风险审查现代化法案》(简称FIRRMA),对全球经济带来震动。FIRRMA对美国外资安审制度中的“受管辖交易”作出重大变革:拓宽具体范围、增设辅助判断的指导性案例、细化不确定性描述、强调国别针对性、引入强制申报程序联动“受管辖交易”。上述改革措施虽然表明了美国投资保护主义抬头、违反非歧视原则、外资安审制度沦为政治工具,但仍因其增强了“受管辖交易”的确定性而有可借鉴之处。基于此,我国外商投资安全审查中的审查范围可从以下四点完善:一是明晰《外商投资安全审查办法》中“应当”主动申报的制度定位,打破实践中建议外资安全审查作为投资前置性程序的误区。二是继续保持定力,立足于本国国情,保持当前审查范围,持续吸引外资。三是明确外资安审制度的法律性内核,贯彻非歧视原则,展现大国担当。四是细化我国“重要领域”等识别指南,提供具体参考示例,以非穷尽式列举的方式,维护国家安全的同时提高外资安审的透明度,为促进全球投资环境的健康发展,贡献中国力量,提供中国方案。It is an international practice to conduct security review on foreign investment that affects or may affect national security. Security audit on foreign capital originated from the U.S., and its sound system has produced a demonstration effect worldwide. In particular, the Foreign Investment Risk Review Modernization Act of 2018(FIRRMA) has shocked global economy. FIRRMA has made major changes to the "covered transactions" in the US foreign capital security review system: broadening the scope of covered transactions, adding guidance cases to assist judgment, refining the description of uncertainty, emphasizing and targeting some specific countries, and introducing into mandatory declaration procedures. Although the above changes show the rise of trade protectionism in the U. S., violation of the principle of non-discrimination, and the manipulation of the foreign investment security review system as a political tool, there are still valuable lessons to learn from because they enhance certainty of "covered transactions". Based on this, the scope of review in China’s foreign investment security review can be improved from the following four aspects: First, make declarations mandatory in Measures for the Security Review of Foreign Investments, and break the misconception that foreign investment security review is recommended as a pre-investment procedure in practice. Second, stay focused based on our national conditions, and keep the current scope of review unchanged to continue to attract foreign investment. Thirdly,uphold the legal essence of the foreign investment security review regulations, implement the principle of nondiscrimination, and demonstrate China’s pledge to be a responsible major global player. Fourthly, specify guidelines which identify China’s "key areas,”and provide concrete examples for reference for the national safety concern, while improving the transparency of foreign investment security review to contribute China’s part to the healthy development of the global investment, and prov

关 键 词：外资安全审查 受管辖交易 FIRRMA 非歧视原则 强制申报 《外商投资法》 国际投资 

分 类 号：F831.6[经济管理—金融学] F125