（照片拍摄于2018年7月1日青岛东海西路风景）

Kenneth A. Blanco, Director of the Financial Crimes Enforcement Network (FinCEN), spoke at the American Bankers Association/American Bar Association (ABA/ABA) Financial Crimes Enforcement Conference on December 10, 2019. He addressed how FinCEN uses Bank Secrecy Act (BSA) data, particularly as it relates to filings involving convertible virtual currency; the status of FinCEN’s BSA Value Project; the importance of beneficial ownership information; FinCEN’s ongoing federal banking agency working group efforts; and some significant organizational changes within FinCEN.

2019年12月10日，金融犯罪执法网络（FinCEN）主任肯尼斯·A·布兰科在美国银行家协会和美国律师协会金融犯罪执法会议上发言。他阐述了FinCEN如何使用《银行保密法》数据，特别是涉及可兑换虚拟货币报告的数据；FinCEN《银行保密法》价值项目的进展情况；受益所有权信息的重要性；FinCEN正在进行的联邦银行机构工作组工作；以及FinCEN内部的一些重大组织调整。

 

 

Good afternoon. It is a pleasure to join you all again this year for the annual ABA/ABA Financial Crimes Enforcement Conference.

下午好。很高兴今年再次和大家一道参加一年一度的美国银行家协会和美国律师协会金融犯罪执法会议。

 

I want to spend a few minutes with you today before turning it over to Rob and my colleague Matt Stiglitz, FinCEN’s Associate Director for our new Global Investigations Division.

今天我想花几分钟和大家讨论一下，然后把时间交给罗伯特·洛维（Robert G. Rowe，美国银行家协会监管合规政策副总裁兼高级顾问）和我的同事——FinCEN新的全球调查部门（GID）副主任马修·斯蒂格利茨（Matthew R. Stiglitz）。

 

So in our time together, I will discuss the following five things:

那么接下来我将讨论以下五件事：

• How we use the Bank Secrecy Act (BSA) data, particularly as it relates to filings involving convertible virtual currency (CVC);

• 我们如何使用《银行保密法》（BSA）数据，特别是涉及可兑换虚拟货币（CVC）报告的数据；

• The status of our BSA Value Project;

• 《银行保密法》价值项目（BSA Value Project）的进展情况；

• The importance of beneficial ownership information;

• 受益所有权信息的重要性；

• Our ongoing federal banking agency working group efforts, and what we have accomplished so far; and

• 我们正在进行的联邦银行机构工作组工作，以及迄今已取得的成效；

• Some significant organizational changes within FinCEN to help us improve stakeholder engagement and leverage our authorities to counter illicit actors.

• FinCEN内部做出的一些重大组织调整，这将有助于我们提高利益相关方的参与度并利用权力打击不法分子。

 

I know many of you have heard me talk about how we use BSA data before, but it bears repeating, particularly with this group today.

我知道你们中的许多人听我讲过如何使用《银行保密法》数据，但这个话题值得反复讲，特别是对今天的听众来说。

 

Those of you in this room need to hear and understand that what you do every day makes a difference. We use the information that you provide to protect our national security, our financial system, our communities, and our families.

在座各位需要聆听和理解，你们每天做的事情都是有意义的。没有你们提供的信息，就无法保护我们的国家安全、我们的金融体系、我们的社区、以及我们的家庭。

 

Your reporting contributes critical information that is routinely analyzed, resulting in the identification of suspected criminal and terrorist activity, and the initiation of investigations.

你们的报告为我们的例行分析提供了关键信息，使我们得以识别疑似犯罪和恐怖活动，进而启动调查。

 

How We Use BSA Data

我们如何使用《银行保密法》数据

 

FinCEN grants more than 12,000 agents, analysts, and investigative personnel from over 350 unique federal, state, local, and tribal agencies across the United States with direct access to this critical reporting by financial institutions.

FinCEN授权来自全美350多个联邦、州、地方和部落机构的12000多名特工、分析师和调查人员直接访问金融机构报送的关键信息。

 

There are approximately 30,000 searches of the BSA data each day.

每天大约有30000次《银行保密法》数据搜索记录。

 

Further, there are more than 100 Suspicious Activity Report (SAR) review teams and financial crimes task forces across the country, bringing together prosecutors and investigators from different agencies to review BSA reports.

此外，全国有100多个可疑活动报告（SAR）审查小组和金融犯罪工作队，来自不同机构的检察官和调查人员被召集在一起审查《银行保密法》报告。

 

Collectively, these teams reviewed approximately 60% of all SARs filed.

这些小组审查的可疑活动报告数占归档报告总数的大约60%。

 

Each day, FinCEN, law enforcement, regulators, and others query this data - that equates to an average of 7.4 million queries per year. Those queries identify an average of 18.2 million filings that are responsive or useful to ongoing investigations, examinations, victim identification, analysis and network development, sanctions development, and U.S. national security activities, among many, many other uses that help protect our nation, deter crime, and save lives.

FinCEN、执法机关、监管机构及其他机构每天都会查询这些数据，这相当于平均每年740万次查询。通过这些查询，我们发现平均有1820万份报告对正在进行的调查、检查、受害者身份识别、分析与网络开发、制裁的制定、美国国家安全活动，以及其他许多有助于保护我们的国家、遏制犯罪和拯救生命的用途作出回应或带来帮助。

 

I would like to discuss how this reporting helps us in the convertible virtual currency space. In May of this year, FinCEN issued an advisory and a significant piece of guidance to help explain how rules are applied to the latest developments in financial innovation.

我想讨论一下这项报告如何在可兑换虚拟货币领域帮助我们。FinCEN于今年5月发布了一份建议和一份重要指引，帮助解释如何将规则适用于金融创新的最新发展。

 

Since FinCEN issued its CVC advisory and guidance, we have seen a significant increase in reporting related to CVC - more than 11,000 SARs in that time. Of these, approximately 7,100 (two-thirds) are from CVC entities including kiosks, exchanges, and peer-to-peer exchangers.

自FinCEN发布可兑换虚拟货币建议和指引以来，我们看到涉及可兑换虚拟货币的报告数量显著增加——迄今已有11000多份可疑活动报告。其中大约7100份（三分之二）来自包括自助终端（kiosk）、交易所（exchange）和点对点交易商（peer-to-peer exchanger）在内的可兑换虚拟货币实体。

 

I point this out because before our May advisory, reports from CVC entities made up about half of our convertible virtual currency-related filings. But as of November 2019, over 2,100 unique filers have referenced the advisory key terms directly. It is encouraging that CVC entities, dozens of whom had never filed a SAR report prior to the May advisory, are using the red flags and reporting suspicious activity back to us.

我之所以指出这一点是因为在我们5月发布建议之前，来自可兑换虚拟货币实体的报告仅占此类报告的一半左右。但截至2019年11月，2100多个独立报告主体直接引用了建议的关键条款。令人鼓舞的是，在5月发布建议之前，有数十家可兑换虚拟货币实体从未报送过可疑活动报告，而现在它们正在引用红色预警信号向我们报告可疑活动。

 

I think it is important for all financial institutions to ask themselves whether they are reporting such suspicious activity. If the answer is no, they need to reevaluate whether their institutions are exposed to cryptocurrency.

我认为重要的是，所有金融机构都应当扪心自问是否报告了此类可疑活动。如果答案是否定的，那么他们需要重新评估其机构是否面临加密货币的风险。

 

Let me also share some trends we are seeing in SAR reporting in response to many of the red flags in the advisory.

让我来分享一些我们在针对建议的许多红色预警信号报送的可疑活动报告中看到的趋势。

 

FinCEN is seeing an increase in filings from exchanges identifying potential unregistered, foreign-located money services businesses (MSBs), specifically, Venezuela-based peer-to-peer exchangers.

FinCEN看到交易所报送的识别出潜在的未经登记和位于国外的货币服务商（MSB），特别是位于委内瑞拉的点对点交易商的报告数量在增加。

 

Exchanges also have increased their reporting of customers conducting transactions with CVC addresses linked to darknet marketplaces. Convertible virtual currency kiosk operators also have increased their reporting on activity indicative of scam victims, particularly new customers with limited knowledge of CVC, including the elderly.

交易所还增加了对客户使用链接到暗网市场的可兑换虚拟货币地址进行交易的报告数量。可兑换虚拟货币自助终端运营商也增加了对疑似诈骗受害者活动的报告数量，特别是对包括老年人在内的对可兑换虚拟货币了解有限的新客户。

 

BSA Value Project

《银行保密法》价值项目

 

Because BSA reporting is so valuable, we must (1) ensure it is collected efficiently, (2) use it to the greatest extent possible, and (3) effectively communicate its use and value.

由于《银行保密法》报告的价值如此之高，我们必须确保高效收集报告，尽最大可能使用报告，有效传达报告的使用情况和价值。

 

Earlier this year, FinCEN began the BSA Value Project, a study and analysis of the value of the BSA information we receive. We are working to provide comprehensive and quantitative understanding of the broad value of BSA reporting and other BSA information in order to make it more effective and its collection more efficient.

今年早些时候，FinCEN启动了《银行保密法》价值项目，对我们收到的《银行保密法》信息的价值进行研究和分析。我们正在努力全面和定量地理解《银行保密法》报告及其他《银行保密法》信息的广泛价值，以使其更加有效、并且收集更加高效。

 

FinCEN is using the BSA Value Project to improve how we communicate the value and use of BSA information, and to develop metrics to track and measure the value of its use on an ongoing basis.

FinCEN正在使用《银行保密法》价值项目改进我们传达《银行保密法》信息的价值和使用情况的方式，并制定持续跟踪和衡量其使用价值的指标。

 

The project has involved the gathering and review of reams of data, statistics, case studies, and other information, as well as holding detailed interviews with a wide range of government and private-sector stakeholders, including many of the organizations in this room today.

项目涉及大量数据、统计数字、案例研究及其他信息的收集和审查，以及与包括今天在座的许多组织在内的广泛的政府和私营部门利益相关方进行的详细访谈。

 

That information has informed us about how each stakeholder uses and gains value from BSA reporting and the value-add activities of other stakeholders.

这些信息告诉我们，各利益相关方如何使用《银行保密法》报告及其他利益相关方的增值活动，并从中获得价值。

 

This “value chain” of BSA reporting is being developed for each type of stakeholder: FinCEN, law enforcement, industry, regulators, and others.

《银行保密法》报告正在为包括FinCEN、执法机关、业界、监管机构等在内的各类利益相关方分别打造“价值链”。

 

We are validating these results with the agencies and firms that have contributed to their development, and soon we will be talking with some of you about the value chain that has been developed for financial institutions to ensure it captures every aspect properly.

我们正在与那些为打造价值链做出过贡献的机构和公司验证这些结果，很快我们将与在座的一些人讨论为金融机构打造的价值链，以确保其正确地抓住每个方面。

 

As of today, the team has identified over 500 different metrics that are being incorporated into the valuation model. We expect the model to show us the relative value of specific forms and even key fields - what is seen as more valuable and what is seen as less valuable.

截至目前，项目组已经确定了500多个不同的指标并纳入评估模型。我们希望模型可以向我们展示特定表单甚至是关键字段的相对价值——哪些被认为更有价值，哪些被认为不那么有价值。

• This value quantification model will help us assess how the regulatory and compliance changes we are considering making with our government partners will affect the value of BSA reporting - we want any changes to lead to more effective outcomes and increase the value of BSA reporting, not just provide greater industry efficiency.

• 价值量化模型将帮助评估我们正在考虑与我们的政府合作伙伴进行的监管与合规变化将如何影响《银行保密法》报告的价值——我们希望任何变化都可以带来更加有效的结果并提高《银行保密法》报告的价值，而不仅仅是提高业界效率。

• It will help us provide you better and more targeted feedback on the information you report so you can identify whether it is the automated tools and databases or the more manual work of your internal financial intelligence units and investigators that is driving that value creation in specific instances.

• 模型将帮助我们向你提供关于你报告的信息的更好和更有针对性的反馈，以便你能找出在特定情况下推动价值创造的是自动化工具和数据库还是内部金融情报部门和调查人员的更多人工作业。

• The project also is showing us specific challenges that we need to address, particularly in the area of communication and the development of shared AML priorities on which we can focus our efforts.

• 项目还向我们展示了需要应对的具体挑战，特别是在沟通和制定共同的反洗钱优先事项方面，以便我们将工作重点放在优先事项上。

 

I also want to make very clear that the value of BSA data is not just confined to FinCEN, law enforcement, or the government. Industry also benefits. Financial institutions and other reporting entities derive important value from their BSA compliance and reporting activities. Throughout the study, industry consistently has confirmed that their BSA obligations, while incurring costs, also help them:

我还想讲清楚的是，《银行保密法》数据的价值不仅限于FinCEN、执法机关或政府，对业界也有好处。金融机构及其他报告主体通过遵守《银行保密法》和开展报告活动获得重要价值。在整个研究过程中，业界一致认可《银行保密法》义务在产生成本的同时，也有助于他们：

• Identify and exit bad actors to avoid reputational and financial risks;

• 识别并退出不法行为客户，以避免声誉和财务风险；

• Manage risks more effectively to permit greater responsible revenue generation;

• 更加有效地管理风险，从而更加负责任地创造收入；

• Secure partnerships and investment opportunities domestically and internationally in a responsible, risk-sensitive manner, something particularly important for emerging entrants in the financial services arena; and, of course;

• 确保以负责任和对风险敏感的方式对待国内和国际伙伴关系和投资机会，这对金融服务领域新的进入者来说尤为重要；

• Avoid financial, operational, and reputational costs from non-compliance.

• 避免因不合规而产生的财务、运营和声誉成本。

 

I want to stress that we intend to be as transparent and public facing as possible about the results from this project. FinCEN hopes to show the tremendous variety of uses we have for your reporting.

我想强调的是，我们打算对项目的结果尽可能保持透明和公开。FinCEN希望展示你们的报告被广泛使用的情况。

 

Beneficial Ownership

受益所有权

 

I hope I have made it clear today that your reports, which are made available to approximately 12,000 authorized law enforcement and regulatory users all over the country, are critical. But for you to provide us with accurate reporting, you must know your customers.

我希望今天已经讲清楚了，你们的报告对全国大约12000名被授权访问的执法机关和监管机构用户来说很关键。但只有当充分了解你的客户时，你们才能向我们提供准确的报告。

 

This brings me to a very important national security issue - beneficial ownership information. Its importance to our national security cannot be understated. The lack of a requirement to collect information about who really owns and controls a business and its assets at company formation is a dangerous and widening gap in our national security apparatus.

这让我想到一个非常重要的国家安全问题——受益所有权信息。它对我们国家安全的重要性不容忽视。缺少在公司成立时要求收集关于谁真正拥有和控制一家企业及其资产的信息的规定，是我们国家安全机关中的一个日益严重的差距。

 

That is because criminals thrive when they have somewhere to hide. And the secrecy behind shell companies - businesses that exist only on paper - is a clear and present danger.

那是因为当有藏身之处时，犯罪分子就会猖獗。空壳公司——仅存在于纸面上的企业——背后的秘密是一个明显而现实的危险。

 

While FinCEN has worked to address this gap through the CDD Rule, which strengthened customer due diligence obligations for certain financial institutions to know the people who own, control, and profit from companies, and to verify their identities at account opening, there is more work to be done. The next critical step to closing this national security gap is collecting beneficial ownership information at the corporate formation stage.

尽管为努力缩小这一差距，FinCEN发布了“客户尽职调查规则”（CDD Rule，即《金融机构客户尽职调查要求》，已于2018年5月生效），强化了某些金融机构的客户尽职调查义务，要求他们了解拥有、控制公司并从中获利的人，并在开户时核实其身份，但仍有更多工作要做。缩小这一国家安全差距的下个关键措施是在公司成立阶段收集受益所有权信息。

 

If beneficial ownership information were required at company formation, it would be harder and more costly for criminals, kleptocrats, and terrorists to hide their bad acts, and for foreign states to avoid detection and scrutiny. This would help deter bad actors accessing our financial system in the first place, denying them the ability to profit and benefit from its power while threatening our national security and putting people at risk.

如果在公司成立时要求收集受益所有权信息，那么犯罪分子、腐败政客和恐怖分子想要隐藏不法行为，以及外国政府想要规避甄别和审查，就会变得更难，成本也会更高。这将有助于从源头阻止不法行为分子进入我们的金融体系，剥夺他们从中获取利益的能力，使我们的国家安全免受威胁，人民免遭风险。

 

We are committed to working with key stakeholders, including Congress, to find effective, sensible solutions to address this serious and growing gap in our national security.

我们致力于与包括国会在内的关键利益相关方合作，寻找有效且合理的解决方案，以缩小我们国家安全中这一日益严重的差距。

 

Interagency Working Group Efforts

跨机构工作组的工作

 

Changing gears, I want to provide a brief update on the accomplishments of the working group established about a year-and-a-half ago between FinCEN, the OCC, FDIC, the Fed, and NCUA. We meet monthly in an effort to coordinate and improve the effectiveness and efficiency of the BSA/AML regime.

接下来，我想简要介绍一下FinCEN、货币监理署（OCC）、联邦存款保险公司（FDIC）、美联储（Fed）和全国信用社管理局（NCUA）于一年半前成立的跨机构工作组所取得的最新成效。我们每月召开一次会议，协调和提高《银行保密法》和反洗钱制度的有效性和效率。

 

First, in October 2018, the group issued its joint statement on shared services to address instances in which banks may decide to enter into collaborative arrangements to share resources to more effectively manage their BSA and AML obligations.

首先，针对银行可能决定达成共享资源的合作协议以更加有效地履行《银行保密法》和反洗钱义务的情况，工作组于2018年10月发布了关于共享服务的联合声明。

 

The joint statement acknowledges that banks and credit unions may benefit from using shared resources to manage certain BSA/AML obligations more efficiently and effectively.

联合声明承认，银行和信用社可以通过共享资源更加有效地履行某些《银行保密法》和反洗钱义务。

 

We issued this statement after hearing from smaller institutions about the challenges and costs of BSA compliance. And while we have heard generally positive feedback, we would like to hear more about whether or not it has been helpful to your institution.

我们是在听取完小型机构关于遵守《银行保密法》的挑战与成本的意见后发布声明的。尽管听到了普遍积极的反馈，但我们希望更多地听到声明对你们的机构是否有帮助。

 

Then, in December 2018, the group issued a joint statement encouraging banks and credit unions to take innovative approaches to combating money laundering, terrorist financing, and other illicit financial threats.

随后，工作组于2018年12月发布了一份联合声明，鼓励银行和信用社采取创新方法打击洗钱、恐怖融资及其他非法金融威胁。

 

Importantly, the joint statement noted innovative pilot programs in and of themselves should not subject banks to supervisory criticism, even if the pilot programs ultimately prove unsuccessful.

重要的是，联合声明指出创新试点项目本身不应当使银行遭到监管批评，即使试点项目最终被证明是不成功的。

 

In July, the working group issued a joint statement as part of continuing efforts to improve transparency into their risk-focused approach to BSA/AML supervision.

工作组于今年7月发布了一份联合声明，作为提高风险为本的《银行保密法》和反洗钱监管方法透明度的持续工作的组成部分。

 

The risk-focused approach enables federal agencies to better tailor examination plans and procedures based on the unique risk profile of each bank. Again, we have generally heard positive feedback on this statement, but would welcome hearing about your specific experiences that can demonstrate the statement is achieving its intended result or why it is not.

风险为本的方法能够使联邦机构根据各家银行独特的风险状况更好地定制检查计划和程序。同样地，尽管听到了对声明的普遍积极反馈，但我们希望听到你们的具体经验，以证实声明是否达到预期结果。

 

Conclusion

结论

 

I would like to conclude today by briefly discussing an organizational realignment at FinCEN we announced last month that will help us improve how we work with all of you here today. FinCEN’s Liaison Division has been realigned as the Strategic Operations Division (Strategic Ops), and is responsible for designing and implementing FinCEN’s strategic partnerships across industry, with state, local, and U.S. Government colleagues, as well as with foreign jurisdiction counterparts.

最后，我想简要讨论一下我们上个月宣布的一项FinCEN组织调整，这将有助于我们改进今天与在座各位的工作方式。FinCEN的联络部门被调整为战略运营部门（Strategic Ops），负责设计并执行FinCEN与州、地方和美国政府同事、以及外国司法管辖区同行之间的跨行业战略伙伴关系。

 

Through these partnerships, Strategic Ops will help direct our operational information sharing and engagement across domestic and international stakeholders as well as inform the implementation of our priorities.

通过这些伙伴关系，战略运营部门将帮助指导我们与国内和国际利益相关方之间的业务信息共享和参与，并为优先事项的执行提供信息。

 

The Division continues to hold a significant role in fulfilling FinCEN’s mission by proactively coordinating stakeholder priorities, enhancing existing programs, and safeguarding access to FinCEN’s information, tools, and resources. It is being led by AnnaLou Tirol, who most recently oversaw the Public Integrity Section at the U.S. Department of Justice.

战略运营部门将继续通过主动协调利益相关方优先事项，加强现有项目，并保障对FinCEN信息、工具和资源的访问等工作，在履行FinCEN使命方面发挥重要作用。该部门由之前负责督导美国司法部公共廉洁处（PIS）的安娜洛·蒂罗尔（AnnaLou Tirol）领导。

 

Last, as announced several months ago, FinCEN’s new Global Investigations Division (GID) has been up and running for several months now. It is allowing us to more effectively and strategically use our financial authorities to counteract actors involved in criminal acts, including the financing of terrorism, weapons proliferation, human rights abuses, human trafficking, fraud, theft, transnational organized crime, corruption, and other malign or illicit activities.

最后，正如几个月前宣布的那样，FinCEN新的全球调查部门（GID）已经成立并运行了几个月。该部门使我们能够更加有效和更具战略性地利用金融权力打击包括恐怖融资、武器扩散、侵犯人权、人口贩运、欺诈、盗窃、跨国有组织犯罪、腐败及其他恶意或非法活动在内的犯罪行为参与者。

 

The ability of a standalone division to focus specifically on identifying and targeting illicit finance around the world - combining targeted analysis with FinCEN’s powerful authorities - will create efficiencies. These efficiencies will result in more uses of FinCEN’s authorities to conduct special collections, issue Geographic Targeting Orders, as appropriate, and Section 311 actions.

成立一个独立部门，专门负责在全球范围内识别和打击非法金融——并将有针对性的分析与FinCEN强大的权力相结合——将提高效率，导致更多地利用FinCEN的权力进行金融情报的特别收集，酌情发布定向地区法令（GTO），以及根据《美国爱国者法案》第311条采取行动（即：对“具有重大洗钱嫌疑”的司法管辖区、金融机构或国际交易采取特别措施；如我国的丹东银行于2017年被列入该名单）。

 

I would now like to turn the remainder of the session over to Rob Rowe and Matt Stiglitz, GID’s Associate Director, to discuss further this new division and its work. It was a pleasure to be here today. Thank you again for all that you do.

现在我想把议程剩下的时间交给罗伯特和马修来进一步讨论新部门的工作。很高兴今天来到这里。再次感谢你们所做的一切。