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Роль валютного контроля таможенных органов в предотвращении бегства капитала Skip to content Известия Байкальского государственного университета 2007 ВАК Область наук
Ключевые слова ВАЛЮТНЫЙ КОНТРОЛЬ / РЕЗИДЕНТЫ / НЕРЕЗИДЕНТЫ / НЕДОПОЛУЧЕНИЕ ВАЛЮТНОЙ ВЫРУЧКИ / НЕДОБРОСОВЕСТНОСТЬ / CURRENCY CONTROL OVER / RESIDENTS / NON-RESIDENTS / SHORT-RECEPTION OF CURRENCY PROCEEDS / BAD FAITH
Аннотация научной статьи по экономике и бизнесу, автор научной работы — Хамаганова Людмила Даниловна Результаты проверок, проведенных отделами валютного контроля Сибирского таможенного управления, показали негативное влияние федерального закона «О валютном регулировании и валютном контроле» от 10 декабря 2003 г. № 173-ФЗ на соблюдение резидентами и нерезидентами установленных норм. Дополнительные соглашения к внешнеэкономическому договору, изменяющие сроки поступления валютной выручки, позволяют участникам ВЭД уходить от ответственности. Анализ внешнеторговых контрактов показывает, что причинами недополучения в полном объеме и в срок выручки от экспорта товаров на транзитный валютный счет экспортера являются недобросовестность иностранного покупателя и российского продавца при отсутствии банковских гарантий, а также наличие подставных фирм.
на тему «Роль валютного контроля таможенных органов в предотвращении бегства капитала»
ПРОБЛЕМЫ МИРОВОЙ ЭКОНОМИКИ
Л.Д. ХАМАГАНОВА
кандидат химических наук, ведущий доцент Байкальского государственного университета экономики
и права, г. Иркутск
РОЛЬ ВАЛЮТНОГО КОНТРОЛЯ ТАМОЖЕННЫХ ОРГАНОВ В ПРЕДОТВРАЩЕНИИ БЕГСТВА КАПИТАЛА
После принятия Указа Президента РФ от 15 ноября 1991 г. № 213 либерализация внешнеэкономической деятельности имела своим следствием массовую утечку капитала из страны. В 1992 г., по данным Банка России, объем невозврата валютной выручки от стоимости всего экспорта составлял примерно 70%, в 1993 — около 40%. В 1994 г., после введения валютного контроля, данный показатель снизился до 12%, в 1995 г. — до 9%, а в 1997 г. — до 5,6%. Начиная с 1996 г. система контроля распространилась на валютные платежи по импортным сделкам1.
Федеральный закон «О валютном регулировании и валютном контроле» от 10 декабря 2003 г. № 173-Ф3 устанавливает
правовые основы и принципы валютного регулирования и валютного контроля в Российской Федерации. Всю систему экспортного валютного контроля можно разделить на две основные составляющие:
– таможенный контроль — контроль за перемещением товара за границу Российской Федерации согласно условиям договора;
– банковский контроль — контроль за своевременным поступлением денежных средств за товар, отправленный за границу Российской Федерации
Механизм таможенно-банковского валютного контроля представляет собой совокупность операций, выполняемых таможенными органами и уполномоченными банками, с одной стороны, при осуществлении таможенного контроля, с другой стороны, при проведении международных расчетов в иностранной валюте.
Обеспечивая достаточно эффективный контроль, эта система имеет свои преимущества и недостатки. Недостатки заключаются в том, что данный механизм не позволяет оператив-
но реагировать на таможенные нарушения и позволяет уйти от ответственности (ликвидируются организации, физические лица, которые могут быть привлечены к ответственности, покидают пределы государства).
В самом общем экономико-статистическом понимании бегство капитала является формой оттока национальных активов, т.е. формой помещения активов в национальной валюте в иностранные (инвалютные) активы. Бегство капитала может происходить как в легальной, так и в нелегальной форме. Главное следствие бегства капитала — это декапитализация национальной экономики, отток ресурсов из страны. Кроме того, в условиях российской экономики это приводит к увеличению теневого сектора.
Нелегальное бегство капитала осуществляется такими способами, как непоступление в срок экспортной выручки, непогашение в срок импортных авансов, неэквивалентный бартер, контрабандный экспорт и другими, отраженными в статье «Чистые ошибки и пропуски» платежного баланса России.
На примере деятельности Иркутской таможни рассмотрим роль валютного контроля таможенных органов в предотвращении бегства капитала из России через внешнеторговые контракты.
Экономика Иркутской области в основном ориентирована на экспорт. Наличие крупнейших промышленных предприятий черной и цветной металлургии, нефтехимической, топливно-энергетической, машиностроительной, лесной и деревообрабатывающей промышленности определяет товарную структуру внешнеторговой деятельности региона и направление товарных потоков.
В 2006 г. в зоне ответственности Иркутской таможни внешнеторговый обо-
© Л.Д. Хамаганова, 2007
рот в стоимостном выражении составил 7 537,05 млн дол. и вырос по сравнению с прошлым годом на 59%. Стоимостные показатели экспортных операций увеличились на 60%, импортных — на 48%. Удельный вес экспортных поставок составил 95% общего товарооборота, импортных — 5%.
По итогам 2006 г., сальдо внешнеторгового баланса было положительным и составило 6 754,4 млн дол. Средний темп роста общего объема товарооборота за последние пять лет достиг 137%. В табл. 1 представлено изменение объемов внешней торговли в зоне ответственности Иркутской таможни в 2002-2006 гг.
Материалы отчета Иркутской таможни за 2006 г. дают представление о динамике объема экспортных операций по грузовым таможенным декларациям (рис. 1).
Доля экспортных поставок из Иркутской области в страны дальнего зарубежья составила значительную часть общего объема экспорта (99%). Стоимостные показатели увеличились по сравнению с 2005 г. на 60%,
натуральные — на 20%. Наиболее крупными торговыми партнерами области среди стран дальнего зарубежья являются Китай, Индия, Япония, Монголия.
В табл. 2 представлена товарная структура экспорта Иркутской области и удельный вес товаров в объеме экспорта в 2005 и 2006 гг.
Как и в предыдущие годы, экспортные поставки в 2005-2006 гг. представлены в основном продукцией нефтехимического и топливно-энергетического комплексов, черными и цветными металлами, древесиной, продукцией машиностроения.
Функции валютного контроля, возложенные на таможенные органы, в Иркутской таможне осуществляются силами отдела валютного контроля.
Большую часть выявляемых подразделениями Иркутской таможни административных правонарушений составляют факты незачис-ления на счета уполномоченных банков РФ валютной выручки в установленные законом сроки в ходе совершения экспортных опе-
Таблица 1
Изменение объемов внешней торговли в зоне ответственности Иркутской таможни
в 2002—2006 гг., млн дол. (%)
Показатель Год Средний темп роста, %
2002 2003 2004 2005 2006
Экспорт 1 982,8 (96) 2 341,3 (96) 3 447,8 (95) 4 470,3 (94) 7 145,7 (95) 138
Импорт 92,7 (4) 105,7 (4) 169,2 (5) 265,1 (6) 391,3 (5) 143
Общий объем внешней торговли 2 075,5 (100) 2 447,0 (100) 3 617,0 (100) 4 735,4 (100) 7 537,0 (100) 138
Внешнеторговое сальдо 1 890,1 (91) 2 235,6 (91) 3 278,6 (91) 4 205,2 (89) 6 754,4 (90) 137
Источник: Отчет Иркутской таможни за 2006 г.
Месяц
2005—2006
Рис. 1. Динамика объема экспортных операций по грузовым таможенным декларациям в 2005-2006 гг.
раций. Выявленный объем непоступления валютной выручки от экспорта товаров и предъявленная к взысканию сумма по всем заведенным в 1999-2004 гг. делам представлены на рис. 2.
В 1999 г. Иркутской таможней было заведено 169 дел о нарушении таможенных правил. Было выявлено непоступление валютной выручки на общую сумму 10,72 млн дол. США, которая увеличилась на 49% по сравнению с 1997 г. В 2001 г. наблюдалось резкое снижение размеров штрафных выплат, что напрямую связано с таким же резким сокращением выявленного объема непоступления валютной выручки. С 1999 г. объем невозврата валютной выручки начал посте-
пенно снижаться. Достигнув своего минимума в 2001 г., он затем стал расти. В 2003 г. произошло значительное увеличение объема невозврата экспортной валютной выручки. Эта величина достигла 7 932,6 тыс. дол. В период с 2001 по 2003 г. размер денежных требований по заведенным делам о непоступлении валютной выручки увеличился на 5 291,25 тыс. дол. (в 3 раза). Выявленная сумма непоступившей валютной выручки возросла за этот же период аналогично. Активизации экспорта способствовало увеличение объемов декларирования товаров, связанное с ростом внешнего спроса со стороны стран, переживающих экономический подъем, в первую очередь Юго-Восточной Азии.
Таблица 2
Товарная структура экспорта Иркутской области в 2005—2006 гг.
Товарная статья Год 2006 к 2005, %
2005 2006
Стоимость товара, тыс. дол. Удельный вес товара в экспорте, % Стоимость товара, тыс. дол. Удельный вес товара в экспорте, %
Продовольственные товары 13 523,1 0,3 13 694,6 0,2 101,3
Продукция ТЭК 2 971 235,7 66,5 4 987 087,0 69,8 167,8
Товары народного потребления 5 389,7 0,1 10 008,0 0,1 185,7
Продукция нефтехимического комплекса 312 688,5 7,0 299 706,2 4,2 95,8
Древесина и изделия из нее 452 470,6 10,1 554 169,2 7,8 122,5
Черные и цветные металлы 457 308,4 10,2 660 872,6 9,2 144,5
Машиностроительная продукция 250 699,6 5,6 613 256,2 8,6 244,6
Прочие товары 6 937,7 0,2 6 913,1 0,1 99,6
Источник: Отчет Иркутской таможни за 2006 г.
□ Объем непоступления валютной выручки | Предъявленная к взысканию сумма
Рис. 2. Выявленный объем непоступления валютной выручки от экспорта товаров и предъявленная к взысканию сумма в 1999-2004 гг., тыс. дол.
В систему таможенно-банковского контроля включены и внешнеторговые сделки, предусматривающие расчеты в российских рублях, что влечет за собой расширение охвата экспортных операций валютным контролем. Однако, несмотря на осуществляемый валютным отделом Иркутской таможни валютный контроль, ежегодное недопоступление валютной выручки, по разным источникам, составляет от 20 до 35%. Причины такого недопоступления различны и могут быть классифицированы как необоснованные и обоснованные. Решение об обоснованности принимается таможенными органами на основании протокола о нарушении таможенных правил.
С вступлением с 1 июля 2002 г. в действие Кодекса об административных правонарушениях РФ таможенные подразделения валютного контроля фактически стали заниматься расследованием дел об административных правонарушениях и подготовкой материалов по делу к рассмотрению. Так, в 2002 г. из всех заведенных дел отдела валютного контроля Иркутской таможни половину составили дела
о нарушении сроков зачисления валютной выручки. На количество проведенных проверок и на выявленный объем непоступления валютной выручки в 2004 г. оказало влияние принятие федерального закона «О валютном регулировании и валютном контроле» от 10 декабря 2003 г. № 173-Ф3. Статья 22 названного закона вступила в силу с даты официальной публикации, что повлекло за собой утрату Государственным таможенным комитетом РФ статуса органа валютного контроля и, как следствие, невозможность проведения таможенными органами проверок участников ВЭД в части ввоза ими товаров в соответствии с произведенной предоплатой.
После вступления в силу с 18 июня 2004 г. основной части 3 закона «О валютном регулировании и валютном контроле» и ввода в действие инструкции Банка России «О порядке предоставления резидентами и нерезидентами уполномоченным банкам документов и информации при осуществлении валютных операций, порядке учета уполномоченными банками валютных операций и оформления паспортов сделок» от 15 июня 2004 г. № 117 поступление информации из Федеральной таможенной службы (ФТС)
России для проведения проверок о предполагаемых нарушениях валютного законодательства участниками ВЭД сократилось, что связано с либерализацией условий проведения валютного контроля.
Отделом валютного контроля Иркутской таможни была проведена проверка участников ВЭД, в ходе которой было установлено, что в 2005 г. сумма незачисленных в установленный срок денежных средств за переданный нерезиденту товар составила 3 234,96 тыс. дол. США. В 2006 г. объем непоступления валютной выручки возрос и достиг 4 759 тыс. дол. США2.
Таможенными органами Сибирского таможенного управления (СТУ) ФТС России проводились проверки участников ВЭД в Сибирском федеральном округе. В результате этих проверок в 2005 г. было выявлено
1 022 случая незачисления и несвоевре-
менного зачисления экспортной валютной выручки на общую сумму 9,7 млн дол. США; в 2006 г. проведено 3 110 проверок участников ВЭД, выявлено нарушений на общую сумму 19,3 млн дол. США3. Как следует из представленных данных, объемы незачисленной валютной выручки и несвоевременно зачисленной экспортной валютной выручки составляют огромную сумму и имеют тенденцию к увеличению.
Таким образом, на основании рассмотренного материала можно сделать следующие выводы:
1. Результаты проведенных отделами валютного контроля СТУ проверок показали негативное влияние федерального закона «О валютном регулировании и валютном контроле» на соблюдение участниками ВЭД установленных норм. В нормативных документах, изданных Банком России, отсутствует требование, обязывающее участников ВЭД в определенные сроки предоставлять в уполномоченные банки дополнительные соглашения к внешнеэкономическому договору, изменяющие сроки поступления валютной выручки. Данный факт позволяет участникам ВЭД уходить от ответственности путем подписания дополнительных соглашений задним числом и представления их в отдел валютного контроля.
2. Как показывает анализ внешнеторговых контрактов, одной из главных причин недопо-
лучения в полном объеме и в срок выручки от экспорта товаров на транзитный валютный счет экспортера является недобросовестность иностранного покупателя и российского продавца при отсутствии банковских гарантий, а также наличие подставных фирм.
Примечания
1 Павлов О.И. На страже интересов России. Валютный контроль. Тула, 2003. С. 21.
2 Отчет Иркутской таможни.
3 Отчет СТУ ФТС РФ.
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