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有關加強規管持牌放債人的公眾諮詢

[June 2025]

香港特別行政區政府在2025年6月建議採取一系列措施加強規管持牌放債人 (“放債人”) ，加大力度處理過度借貸的問題 。 

 

I. 背景及現狀:

1) 規管框架

i. 放債人受《放債人條例》（第163章）規管，需持牌經營，並遵守利率上限、及廣告規範等要求。

ii. 監管分工：牌照法庭（發牌及附加條件）、公司註冊處（處理申請、監察合規）、警方（執法）。


2) 市場問題

i. 過度借貸：低收入群體（尤其外傭）問題突出。

  • 月入≤1萬港元的借款人占無抵押貸款宗數29%，壞賬率9.4%（高於整體7%）。

  • 外傭貸款宗數占比26%，壞賬率9.9%（全職業最高）

  ii. 滋擾問題：外傭借貸後失蹤，導致雇主被追債騷擾。


II. 擬議加強規管措施:

1) 無抵押個人貸款新限制

方案A：累計貸款額上限

針對低收入借款人的無抵押貸款總額設定嚴格限制：

  • 月收入≤5,000港元者，累計未償還貸款總額不得超過其1個月收入。

  • 月收入介於5,001至10,000港元者，累計未償還貸款總額上限為2個月收入。

    注：若借款人無固定收入，放債人須按其過去12個月平均收入計算月收入基準。


方案B：還款占入息比率上限

通過控制月還款額占收入比例防範過度負債：

  • 月收入≤5,000港元者，所有無抵押貸款月還款總額不得超過其月收入的35%。

  • 月收入介於5,001至10,000港元者，月還款總額上限為月收入的40%。

    注："還款"指借款人需向放債人償還的所有無抵押貸款月供總和；浮動收入者同樣適用12個月平均收入計算。


2) 諮詢人制度優化

i. 防騷擾措施：放債人須主動發信向諮詢人核實同意書真偽，或要求諮詢人親臨簽署。

ii. 或考慮禁止要求借款人提供貸款諮詢人。


3) 強制加入"信資通"信貸資料庫

i. 目標：提升借款人信用評估準確性。

ii. 要求：

  • 所有放債人須定期向"信資通"提供借款人信貸資料（包括: 貸款詳情、還款紀錄等）。

  • 業務量達標者（如年無抵押貸款總額≥1億港元，約50家）：批貸前須使用"信資通"報告評估還款能力。


4) 優化投訴處理

i. 公司註冊處將增加投訴處理透明度，強化與警方協作。

ii. 定期收集並分析放債人投訴資料，監察高投訴率放債人的整改措施。


5) 宣傳教育

i. 針對外傭、青年及低收入群體，推廣審慎借貸（如外傭不得擅用雇主資料）。

ii. 加強雇主投訴管道宣傳。


6) 制度改革

i. 發權機制集中化：建議由公司註冊處統一負責放債人發牌及監管（取代牌照法庭）。

ii. 增加透明度：政府網站公佈屢次違規放債人名單。

iii. 修法計畫：擬修訂《放債人條例》落實上述措施。

 

III.  徵詢與下一步:

公眾可以於2025年8月22日前通過電郵（money-lenders-consult@fstb.gov.hk）或郵寄提交意見。政府將分析回饋後敲定最終方案。

 

IV. 資料參考:

有關加強規管持牌放債人的公眾諮詢 (香港特別行政區政府 - 財經事務及庫務局 )

中文版: https://www.fstb.gov.hk/fsb/tc/publication/consult/doc/ConsultationPaperMoneyLenders-c.pdf

英文版: https://www.fstb.gov.hk/fsb/en/publication/consult/doc/ConsultationPaperMoneyLenders-e.pdf



 Summary on Public Consultation on Enhancing Regulation of Licensed Money Lenders

[June 2025]

The Government of the Hong Kong Special Administrative Region (“HKSAR”) proposes a series of measures in June 2025 to strengthen regulation of licensed money lenders ("money lenders"), aiming to address the problem of excessive borrowing. 


I. Background and Current Situation

1) Regulatory Framework

i. Money lenders are regulated under the Money Lenders Ordinance (Cap. 163), requiring a licence to operate. Key rules include: Interest rate caps, and advertising standards. 

ii. Regulatory roles: the Licensing Court issues licences and imposes conditions, the Companies Registry (“CR”): Processes applications/monitors compliance, and the Police enforces the law (e.g., unlicensed lending, excessive interest). 


2) Market Issues

i. Excessive borrowing among low-income groups (especially foreign domestic helpers ("FDHs"))

  • Borrowers with ≤HK$10,000 monthly income: 29% of unsecured loans; default rate: 9.4% (vs. 7.0% overall). 

  • FDHs: 26% of unsecured loans; highest default rate: 9.9%. 

ii. Harassment: Employers of FDHs chased by debt collectors after borrowers disappear. 


II. Proposed Enhanced Regulatory Measures

1) New Restrictions on Unsecured Personal Loans

Scheme A: Cumulative Loan Cap:

Strict limits on total outstanding unsecured loans for low-income borrowers: 

  • Monthly income ≤HK$5,000: Total loans ≤1 month’s income.

  • Monthly income HK$5,001–10,000: Total loans ≤2 months’ income. 

Note: For non-fixed income borrowers, use 12-month average income.


Scheme B: Debt Servicing Ratio Cap:

Limit monthly repayments as a percentage of income: 

  • Monthly income ≤HK$5,000: Repayments ≤35% of income.

  • Monthly income HK$5,001–10,000: Repayments ≤40% of income. 

Note: Applies to total repayments for all unsecured loans; non-fixed income calculated as above. 


2) Optimisation of Referee System

i. Anti-harassment measures: Money lenders must verify referees’ consent by post or require in-person signing. 

ii. Alternative: Prohibit requiring referees for loan applications. 


3) Mandatory Participation in Credit Data Smart (“CDS”)

i. Goal: Improve credit assessment accuracy.

ii. Requirements: All money lenders must regularly submit borrower data (e.g., loan details, repayments) to CDS.

iii. Large lenders (e.g., ≥HK$100M annual unsecured loans, ~50 firms) must use CDS reports for affordability assessments pre-approval. 


4) Enhanced Complaint Handling

i. CR will increase transparency in complaint procedures and strengthen collaboration with Police,

ii. Monitor lenders with high complaint rates. 


5) Publicity and Education

i. Target FDHs, youth, and low-income groups on prudent borrowing (e.g., FDHs must not misuse employer data).

ii. Promote employer complaint channels. 


6) Regime Reforms

i. Centralise licensing: Propose transferring licence issuance/supervision from Licensing Court to CR. 

ii. Increase transparency: Publish names of repeat offenders on government website.

iii. Legislative amendments: Revise the Money Lenders Ordinance to implement measures. 


III. Consultation and Next Steps

The Public can submit the comment on or before 22 August 2025 via email: `money-lenders-consult@fstb.gov.hk, or post: Division 6, Financial Services Branch, FSTB, 15/F, Queensway Government Offices, 66 Queensway, Hong Kong. The final proposals to be determined after analyzing feedback from the Public.


IV. Reference Materials

Full Consultation Paper: 

English: https://www.fstb.gov.hk/fsb/en/publication/consult/doc/ConsultationPaperMoneyLenders-e.pdf

Chinese: https://www.fstb.gov.hk/fsb/tc/publication/consult/doc/ConsultationPaperMoneyLenders-c.pdf]



天匯合規顧問有限公司 ComplianceOne Consulting Limited

2025年6月24日

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