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FinCEN issues ANPRM on no-action letter process
On June 3, FinCEN issued an Advance Notice of Proposed Rulemaking (ANPRM) soliciting comments on questions related to implementing a no-action letter process at the agency. The ANPRM is part of FinCEN’s implementation of the Anti-Money Laundering Act of 2020, which directed the agency to conduct an assessment of a no-action letter process concerning how anti-money laundering or countering the financing of terrorism laws may apply to specific conduct. The ANPRM follows FinCEN’s June 2021 report to Congress (covered by InfoBytes here), which concluded that the agency should undertake rulemaking to establish a process for issuing no-action letters that will supplement its current forms of regulatory guidance and relief. FinCEN noted in its announcement that the addition of a no-action letter process (“generally understood to be a form of enforcement discretion where an agency states by letter that it will not take an enforcement action against the submitting party for the specific conduct presented to the agency”) could overlap with and “affect other forms of regulatory guidance and relief that FinCEN already offers, including administrative rulings and exceptive or exemptive relief.” The agency is seeking public input on whether the process should be implemented and, if so, how the process should work. Included in the ANPRM are questions concerning, among other things, FinCEN jurisdiction (specifically “[w]hat is the value of establishing a FinCEN no-action letter process if other regulators with jurisdiction over the same entity do not issue a similar no-action letter”), whether there should be limitations on which factual circumstances could be considered, and whether the scope of a no-action letter should be limited so that requests may not be submitted during a Bank Secrecy Act examination. The ANPRM also asked questions related to changes in circumstances, revocations, denials and withdrawals, confidentiality and consultation concerns, and criteria for distinguishing no-action letters from administrative rulings or exceptive/exemptive relief.
Comments on the ANPRM are due August 5.
Terrorist Financing Targeting Center members designate financial facilitators of terrorism
On June 6, the U.S. Treasury Department announced that member nations of the Terrorist Financing Targeting Center (TFTC) have jointly designated 16 individuals, entities, and groups affiliated with a variety of regional terrorist organizations. This marks the fifth year of coordinated TFTC sanctions actions targeting terrorist financing, Treasury stated. The sanctioned persons, who were all previously designated by the U.S., include three individuals associated with Iran’s Islamic Revolutionary Guard Corps-Qods Force, four ISIS-associated individuals and one company, six Boko Haram financiers, and two terrorist groups. The TFTC was created to counter regional money laundering and terrorist financing networks by “identifying, tracking, and sharing information about terrorist financing networks; coordinating joint disruptive actions; and offering capacity-building training and assistance in countering the financing of terrorism,” and serves to enhance multilateral efforts among the U.S. and the Gulf countries of Bahrain, Kuwait, Oman, Qatar, Saudi Arabia, and the United Arab Emirates.
Treasury issues 2022 national illicit finance strategy
On May 13, the U.S. Treasury Department issued the 2022 National Strategy for Combatting Terrorist and Other Illicit Financing (2022 Strategy). As required by federal law, the 2022 Strategy describes current U.S. government efforts to combat domestic and international illicit finance threats from terrorist financing, proliferation financing, and money laundering, and discusses potential risks, priorities and objectives, as well as areas for improvement. Among other things, the 2022 Strategy reflects challenges posed by the Covid-19 pandemic, the increasing digitization of financial services, and rising levels of corruption and fraud. Specifically, Treasury noted that 2022 risk assessments highlights threats “posed by the abuse of legal entities, the complicity of professionals that misuse their positions or businesses, small-sum funding of domestic violent extremism networks, the effective use of front and shell companies in proliferation finance, and the exploitation of the digital economy.”
According to Treasury, the 2022 Strategy, along with the agency’s 2022 National Money Laundering Risk Assessment (covered by InfoBytes here), “will assist financial institutions in assessing the illicit finance risk exposure of their businesses and support the construction and maintenance of a risk-based approach to countering illicit finance for government agencies and policymakers.”
Specifically, to protect the U.S. financial system from corruption and other illicit finance threats, the 2022 Strategy outlined four priorities and 14 supporting actions to address these threats. These include:
- closing legal and regulatory gaps in the U.S. anti-money laundering/counter the financing of terrorism (AML/CFT) framework that are used to anonymously access the U.S. financial system through shell companies and all-cash real estate purchases;
- increasing the efficiency of the U.S. AML/CFT regulatory framework “by providing clear compliance guidance, sharing information appropriately, and fully funding supervision and enforcement”;
- enhancing the operational effectiveness of law enforcement, other U.S. government agencies, and international partnerships to prevent illicit actors from accessing safe havens; and
- enabling technological innovation while mitigating risk to stay ahead of new avenues for abuse through virtual assets and other new financial products, services, and activities.
The same day the U.S. and Mexico announced their commitment to establish a working group on anti-corruption, which will primarily focus on high-level strategic responses to public corruption. The announcement follows a recent agreement between delegates from the two countries to continue expanding information-sharing efforts to improve bilateral efforts for countering illicit finance.
FATF updates statements concerning jurisdictions with AML/CFT/CPF deficiencies
On March 10, the Financial Crimes Enforcement Network (FinCEN) announced updates to the Financial Action Task Force (FATF) statements concerning jurisdictions with strategic anti-money laundering, countering the financing of terrorism, and combating weapons of mass destruction proliferation financing (AML/CFT/CPF) deficiencies. Specifically, to ensure compliance with international standards, FAFT updated the following two statements: (i) Jurisdictions under Increased Monitoring, which identifies jurisdictions with strategic deficiencies in their AML/CFT/CPF regimes that have committed to, or are actively working with, FATF to address those deficiencies in accordance with an agreed upon timeline and; (ii) High-Risk Jurisdictions subject to a Call for Action, which identifies jurisdictions with significant strategic deficiencies in their AML/CFT/CPF regimes and instructs FATF members to apply enhanced due diligence, and in the most serious cases, apply counter-measures to protect the international financial system from such risks. Among other things, through the announcement, FinCEN reminded covered financial institutions of their obligations to comply with due diligence obligations for foreign financial institutions (in addition to their general obligations) to ensure their due diligence programs “include appropriate, specific, risk-based, and, where necessary, enhanced policies, procedures, and controls that are reasonably designed to detect and report known or suspected money laundering activity conducted through or involving any correspondent account established, maintained, administered, or managed in the United States.” Money service businesses are also required to establish appropriate policies to address money laundering and terrorism financing risks posed by their relationships with foreign agents or foreign counterparties. FinCEN further instructed financial institutions to comply with U.S. prohibitions against the opening or maintaining of any correspondent accounts, whether directly or indirectly, for North Korean or Iranian financial institutions, which are already prohibited under existing U.S. sanctions and FinCEN regulations. As previously covered by InfoBytes, FinCEN last announced updates to the FATF statements in October.
U.S.-EU release statement on Joint Financial Regulatory Forum
On March 1 and 2, EU and U.S. participants, including officials from the Treasury Department, Federal Reserve Board, CFTC, FDIC, SEC, and OCC, participated in the U.S. – EU Joint Financial Regulatory Forum to continue their ongoing financial regulatory dialogue. Matters discussed focused on six themes: “(1) market developments and current assessment of financial stability risks, (2) operational resilience and digital finance, (3) sustainable finance and climate-related financial risks, (4) regulatory and supervisory cooperation in capital markets, (5) multilateral and bilateral engagement in banking and insurance, and (6) anti-money laundering and countering the financing of terrorism (AML/CFT).”
While acknowledging that both the U.S. and EU are “experiencing robust economic recoveries,” participants warned that significant uncertainty and risks are created by the current geopolitical situation, as well as challenges stemming from the ongoing Covid-19 pandemic, high energy prices, and supply-chain bottlenecks. “[C]ooperative international engagement to mitigate financial stability risks remains essential,” participants stressed. During the meeting, participants also discussed recent developments related to crypto-assets, digital finance, and so-called stablecoins, as well as the potential for a central bank digital currency, and “acknowledged the importance of ongoing international work on digital finance and recognized the benefits of greater international supervisory cooperation with a view to promote responsible innovation globally.”
In addition, participants discussed various topics, including those related to third-party providers; climate-related financial risks and challenges, including sustainability reporting standards; the transition from LIBOR; and progress made in strengthening their respective AML/CFT frameworks.
Treasury publishes risk assessments for money laundering, terrorist financing, and proliferation financing
On March 1, the U.S. Treasury Department published the 2022 National Risk Assessments on money laundering, terrorist financing, and proliferation financing, which highlight significant illicit finance threats, vulnerabilities, and risks facing the United States.
The 2022 National Money Laundering Risk Assessment found that “[c]riminals continue to use a wide range of money laundering techniques, including traditional ones, to move and conceal illicit proceeds depending on what is available or convenient to them.” Crimes generating the largest amount of laundered illicit proceeds in or through the U.S. include fraud, drug trafficking, cybercrime, human trafficking and smuggling, and corruption. The assessment found that continued and emerging money laundering risks involve, among other things, the persistent misuse of legal entities, a lack of transparency in certain real estate transactions, merchants and professionals that misuse their positions or businesses, and compliance and supervision weaknesses at some regulated U.S. financial institutions. Additionally, operators of virtual asset service providers (VASPs) are reminded that violating the Bank Secrecy Act or neglecting regulatory requirements, “such as failing to establish effective AML programs or report suspicious activities,” present vulnerabilities to the financial system.
The findings of the 2022 National Terrorist Financing Risk Assessment, according to the press release, included that, with respect to foreign terrorist groups, “the most common form of financial support from U.S.-based individuals continues to be the transfer of small sums (several hundred to tens of thousands of dollars) to facilitators outside of the U.S. working on behalf of ISIS and its affiliates, Al-Qaida and its affiliates, and Hizballah.” For the first time, the assessment also analyzed funding methods used to support domestic violent extremists.
The 2022 National Proliferation Financing Risk Assessment found that most significant proliferation finance threats are posed by the Democratic People’s Republic of Korea followed by Iran. These networks misuse correspondent banking relationships and create front/shell companies to facilitate financial activity and conduct trade, and they generate significant revenue from the maritime sector. The press release stated that the assessment further found that these networks are beginning to “increasingly exploit[] the digital economy, including through the systematic mining and trading of virtual assets, and the hacking of virtual asset service providers.” In the upcoming weeks, Treasury will release the 2022 National Strategy for Combatting Terrorist and Other Illicit Finance, which will be informed by the analysis contained in these risk assessments and will share recommendations for addressing these highlighted threats.
Treasury releases study on illicit finance in the high-value art market
On February 4, the U.S. Treasury Department published a study examining the high-value art market’s money laundering and terrorist financing risks to the U.S. financial system. The study also identified efforts U.S. government agencies, regulators, and other market participants should explore to mitigate the laundering of illicit proceeds through this industry. Treasury’s Study of the Facilitation of Money Laundering and Terror Finance Through the Trade in Works of Art found that while there is some evidence of money laundering risk in the high-value art market, there was limited evidence of a nexus between terrorist financing risk and high-value art (which the study theorizes is in part due “to a disconnect between the high-value art market and the physical geographies where terrorist groups are most active”). Participants most vulnerable to money laundering in the art market, the study noted, are financial services companies that offer art-collateralized loans but that are not subject to comprehensive anti-money laundering/countering the financing of terrorism (AML/CFT) requirements. Banks that facilitate payments between customers and art market institutions also present unique money laundering risks, the study found, while asset-based lending can disguise the original source of funds and provide liquidity to criminals. The study further cautioned that entities with large annual sales turnover present higher money laundering risks, and stressed that the emerging digital art market (including non-fungible tokens or NFTs) “may present new risks, depending on the structure and market incentives of certain activity in this sector of the market.”
To address the identified risks, the study recommended the following: (i) supporting “private sector information-sharing programs to encourage transparency among art market participants”; (ii) “updating guidance and training for law enforcement, customs enforcement, and asset recovery agencies”; (iii) using recordkeeping and reporting authorities to support information collection and money laundering activity analyses; and (iv) “applying comprehensive AML/CFT requirements to certain art market participants.” Treasury noted that it will consider “how these measures could mitigate identified money laundering risk, the potential burden on smaller art market participants, privacy considerations, as well as progress on addressing systemic AML/CFT issues, such as the abuse of shell companies.”
FinCEN explores possibility of creating regulatory sandboxes
On January 13, the acting Director of FinCEN Him Das spoke at the Financial Crimes Enforcement Conference to discuss the transformation of the anti-money laundering/counter-terrorist financing regulatory regime as it relates to new threats, new innovations, and new partnerships. Das highlighted recent FinCEN rulemaking initiatives, including a proposed rule issued last December (covered by InfoBytes here) to implement the beneficial ownership information reporting provisions of the Corporate Transparency Act. In particular, the proposed rule would require many U.S. and foreign companies to report their true beneficial owners to FinCEN and update that information when those beneficial owners change. Das explained that FinCEN is examining how a proposed beneficial ownership database would interplay with the Customer Due Diligence Rule, and stated the agency will share more information in the coming months. Das also discussed an Advance Notice of Proposed Rulemaking (covered by InfoBytes here), which sought comments on potential requirements under the Bank Secrecy Act to address vulnerabilities in the U.S. real estate market to money laundering and other illicit activity.
With respect to new innovation, Das noted that while FinCEN is exploring the idea of creating regulatory sandboxes to test new methods of transaction monitoring using artificial intelligence, the agency needs feedback from institutions on the potential use and risks of the program. Das also discussed other potential innovative ideas, including, among other things, “new approaches to customer risk rating and institutional risk assessment, digital identity tools and utilities, and automating the adjudication and filing of [suspicious activity reports] related to certain types of activity.”
FinCEN seeks comments on updating AML/CFT regime
On December 14, the Financial Crimes Enforcement Network (FinCEN) issued a request for information (RFI) in the Federal Register seeking comments from regulated entities; state, local, and Tribal governments; law enforcement; regulators; and other consumers of Bank Secrecy Act (BSA) data, on ways to redevelop the anti-money laundering and countering the financing of terrorism (AML/CFT) regime in the U.S. According to the announcement, FinCEN intends to collect comments regarding ways to modernize risk-based AML/CFT regulations and guidance so that they protect U.S. national security in a cost-effective and efficient manner. Additionally, the RFI “supports FinCEN’s efforts to conduct a formal review of BSA regulations and related guidance, which is required by Section 6216 of the Anti-Money Laundering Act of 2020.”
As previously covered by InfoBytes, the Anti-Money Laundering Act of 2020 made numerous changes to the BSA, including amendments to the definition of “financial institution” to include a “person engaged in the trade of antiquities, including an advisor, consultant, or any other person who engages as a business in the solicitation or the sale of antiquities.” According to FinCEN, this “review will help FinCEN ensure that BSA regulations and guidance continue to safeguard the U.S. financial system from threats to national security posed by various forms of financial crime, and that BSA reporting and recordkeeping requirements continue to be highly useful in countering financial crime.” This review will also permit the agency “to identify regulations and guidance that are outdated, redundant, or otherwise do not promote a risk-based AML/CFT compliance regime for financial institutions, or that do not conform with U.S. commitments to meet international AML/CFT standards.” The findings of the review will be reported to Congress, and will include administrative and legislative recommendations. Comments are due by February 14, 2022.
FinCEN issues environmental crimes notice
On November 18, the Financial Crimes Enforcement Network (FinCEN) issued a notice calling attention to the increase of environmental crimes and associated illicit financial activity. FinCEN emphasized that this trend is due to: (i) its strong association with corruption and transnational criminal organizations, two of FinCEN’s national anti-money laundering and countering the financing of terrorism priorities; (ii) a need to enhance reporting and analysis of related illicit financial flows; and (iii) environmental crimes’ contribution to the climate crisis, including threatening ecosystems, decreasing biodiversity, and increasing carbon dioxide in the atmosphere. The notice also provided financial institutions with specific suspicious activity report filing instructions and outlined the likelihood of illicit financial activity associated with several types of environmental crimes.