February 06, 2020

SIFMA 20th Anti-Money Laundering (AML) and Financial Crimes Conference

New York City

2020年2月6日，美国金融犯罪执法网络（FinCEN）副主任贾马尔·埃尔辛迪（Jamal El-Hindi）在美国纽约万豪侯爵酒店举行的美国证券业和金融市场协会（SIFMA）第二十届反洗钱和金融犯罪会议上发言。

 

On behalf of FinCEN Director Kenneth A. Blanco and the rest of the staff at FinCEN, I want to thank SIFMA for asking us to participate in SIFMA’s 20th annual AML conference. We view it as an excellent opportunity to engage with an important group of industry stakeholders. Yesterday, you heard from Laura Richardson from FinCEN’s Intelligence Division on how we use financial institution reporting, particularly in the case of identifying trends in elder fraud. I also am happy to note that we have two other FinCEN staffers here: Ted Vlahakis and Danica Hames from FinCEN’s Enforcement Division.

我谨代表FinCEN主任肯尼斯·A·布兰科（Kenneth A. Blanco）及FinCEN全体同仁，感谢SIFMA邀请我们参加SIFMA第二十届反洗钱年度会议。我们认为这是与重要的业界利益相关方进行接触的绝佳机会。昨天，你们从来自FinCEN情报部门的劳拉·理查德森（Laura Richardson）那里了解了我们如何使用金融机构的报告，特别是在识别老年人欺诈的趋势方面。我也高兴地注意到我的另外两名同仁也在现场：来自FinCEN执法部门的泰德·弗拉哈基斯（Ted Vlahakis）和丹妮卡·海姆斯（Danica Hames）。

 

I first came to this conference in 2007, about a half year after starting at FinCEN. It became one of my favorite annual events because it provided a good opportunity for me to learn about a component of the financial sector that I did not know well. As a group of professionals, the SIFMA community was very welcoming. They also were very giving, particularly with their opinions on how our AML regime needed to be improved. They also were quite passionate about making sure that I understood that not all financial institutions are banks. They reflected what they perceived as a need for more particular guidance from - and attention of - FinCEN with respect to the nuances of the securities and futures industry.

我第一次参加本会议是在2007年，在我刚加入FinCEN大约半年之后。由于它提供了一个很好的机会，让我可以了解金融业中我不太了解的一个组成部分，它成了我最喜欢的年度活动之一。作为一群专业人士，SIFMA社区非常热情。他们也非常慷慨，特别是就我们的反洗钱体制需要如何改进提出自己的意见。他们还非常热衷于让我明白并非所有金融机构都是银行。他们认为FinCEN需要在证券和期货业的细微差别上给予更多特别的指引和注意。

 

I want to do three things in my remarks this morning. First, at SIFMA’s request, I want to reflect on some issues that I have seen with respect to BSA/AML in this sector since I first came to FinCEN. Second, I want to reiterate the importance of what you do by highlighting the value of BSA information. Finally, I want to share with you some thoughts about our current regulatory landscape.

我想在今天上午的发言中谈三件事。首先，根据SIFMA的要求，我想回顾一下从我刚加入FinCEN以来，我看到的关于《银行保密法》（BSA）和反洗钱在这个行业的一些问题。其次，我想强调《银行保密法》信息的价值，从而重申你们工作的重要性。最后，我想和你们分享关于我们当前监管环境的一些想法。

 

Through the years

这些年来

 

When I first came to FinCEN in 2006 and to this conference in 2007, I had a couple of primary observations with respect to your industry and our regulation of it.

当我2006年刚加入FinCEN及2007年第一次参加本会议时，我对你们的行业及我们对它的监管有了一些初步的看法。

 

The first observation involves the nature of this industry. I recognized that the securities and futures sector includes a very complex group of inter-related parties handling various aspects of your transactions. Different entities wear different hats at different times, depending on the types of activities. FinCEN’s regulations in this space, then and now, only reference broker-dealers, mutual funds, introducing brokers in commodities, and futures commission merchants. But those broad categories cover an amazingly complex set of relationships. Introducing firms, clearing firms, primary brokerages, executing dealers, transfer agents, give-up agreements, piggy-backing arrangements, and more.

第一个看法涉及到这个行业的性质。我认识到证券和期货业包含一系列非常复杂的相互关联方，他们处理你们交易的各个方面。不同机构在不同时间戴着不同的帽子（指扮演不同的角色），这取决于活动的类型。FinCEN在该领域的法规，无论过去还是现在，都只涉及经纪自营商（B-D）、共同基金（MF）、大宗商品介绍经纪商（IB）及期货佣金商（FCM）。但这些广泛的类别涵盖了一系列极为复杂的关系。介绍商（introducing firm）、清算商（clearing firm）、一级市场经纪（primary brokerage）、执行交易商（executing dealer）、过户代理人（transfer agent）、让与协议（give-up agreement）、中间人清算安排（piggy-backing arrangement）、等等。

 

I joined FinCEN after the finalization of rules imposing special due diligence for certain foreign accounts under Section 312 of the PATRIOT ACT. FinCEN was then in the midst of a series of guidance pieces directed to your community that had to spell out which parties were obligated to do what in terms of information collection and due diligence, and who could reasonably rely on whom to collect relevant information, given the various layers of actors and actions in your space that might all be linked to an ultimate customer. I have learned a lot throughout this process through my interactions with SIFMA, its members, including many of you here, and many FinCEN staffers, past and present. And through this, I have observed one issue in particular that still troubles me.

我刚加入FinCEN时，根据《爱国者法案》第312条对某些外国账户进行特别尽职调查的规则已经定稿。考虑到在你们的领域中各种各样的行为者和行为都可能与最终客户产生关联，FinCEN当时正在制定一系列针对证券和期货业的指引文件，以详细说明哪些当事人在信息收集和尽职调查方面有义务，哪些当事人可以合理依托其他当事人来收集相关信息。在整个过程中，通过与SIFMA、其成员（包括在座的许多人）及许多FinCEN过去和现在的工作人员的互动，我收获良多。并且，我还发现了一个至今仍困扰我的问题。

 

Our AML principles generally revolve around promoting appropriate transparency of transactions for the benefit of both the financial institutions processing them and FinCEN’s law enforcement stakeholders. But the complexity of the transactions and relationships in your space present a challenge to transparency. And when we talk about the concept of “knowing your customer,” we have to recognize that the culture of any highly competitive industry may discourage sharing customer information for the purpose of anti-money laundering or other financial crime prevention, when it could result in potentially losing a customer to a competitor.

我们的反洗钱原则通常围绕推动交易的适当透明度，以使处理交易的金融机构和FinCEN的执法利益相关方都受益。但是在你们的领域中交易和关系的复杂性对透明度提出了挑战。当我们谈到“了解你的客户”的概念时，我们必须认识到任何高度竞争行业的文化都可能阻止出于反洗钱或预防其他金融犯罪目的共享客户信息，因为这可能会导致客户被竞争对手撬走。

 

I think that this dynamic continues to make your sector challenging from an AML regulatory perspective. Currently, about 40 percent of depository institutions are registered to participate in business-to-business information sharing through the 314(b) program. By comparison, only 14 percent of all entities in the securities sector that are eligible to register for this important information sharing mechanism do so. Here is my question to you: Does this lower registration rate reflect a culture that is more fearful of information sharing in your competitive environment?

我认为，从反洗钱监管的角度来看，这种动态性将继续使你们的行业面临挑战。目前，约40%的存款机构为参与《爱国者法案》314(b)规定的企业间信息共享进行了登记。相比之下，只有14%的证券业机构为参与该项重要的信息共享机制进行了登记。我的问题是：这种较低的登记率是否反映出在竞争环境中更害怕信息共享的文化？

 

We are hopeful that at a time when we are all recognizing the importance of appropriate information sharing, your businesses will work toward the sharing of more information with one another, either bilaterally or through associations under 314(b), to root out illicit activity, while at the same time figuring out how to protect the information you share from being used to steal each other’s customers. Where there is a will, there is a way. There are those in this room who are leading the way toward better sharing of information in this sector. It is our hope that others in this room will follow their lead, and we are happy to work with you.

我们希望当我们都认识到适当的信息共享的重要性时，你们的机构将努力通过双边或结成《爱国者法案》314(b)规定的联盟以彼此共享更多信息并根除非法活动，同时找出如何保护共享的信息不被用来撬走对方的客户。有志者，事竟成。在座的一些人正引领着这个行业更好地共享信息。我们希望在座的其他人也能以他们为榜样，我们很高兴与你们合作。

 

The second observation involves the regulatory community in your space where we have made positive strides in terms of better communication and collaboration with one another. When I first joined FinCEN, there were clearly disconnects in our relationships with our fellow regulators.

第二个看法涉及到你们的领域的监管机构，我们在彼此更好的沟通和协作方面取得了积极进展。当我刚加入FinCEN时，我们与监管合作伙伴的关系明显中断。

 

Through the years, I have seen greater coordination and communication. FinCEN has always promoted such coordination and continues to do so. This is particularly important given that enforcement initiatives and heightened compliance in one part of the financial sector may result in illicit activity migrating to other sectors. We have seen bad activity migrate from the banking sector to the capital markets. We also have seen migration of bad activity from your sector to the banking sector. Only through cross-agency coordination on these issues can each regulator do its best to advise and supervise its constituents.

这些年来，我看到了更好的协调和沟通。FinCEN一直在推动这种协调，并将继续推动下去。考虑到对金融业的一个类别采取强制举措和加强合规要求可能导致非法活动转移至其他类别，这点特别重要。我们看到不法活动从银行业转移到资本市场。我们也看到不法活动从你们的行业转移到银行业。只有通过在这些问题上的跨机构协调，每个监管机构才能尽其所能地为受监管机构提供建议和监督。

 

Recently, staff at FinCEN, the SEC, and FINRA got together with the banking regulator staff to discuss the potential migration of specific illicit activity to the banking sector as a result of greater scrutiny by the securities regulators with respect to offshore brokers attempting to use omnibus accounts for illicit purposes. It is an example of the type of cross-regulator awareness and focus necessary to keep up with the various new ways in which illicit actors are trying to abuse the financial system. And with respect to cross-regulator collaboration, it is also important that each regulator sharing jurisdiction in this space focuses on what it can do best. At FinCEN, our Enforcement Division has been emphasizing our own analysis and special information collection authorities to identify institutions of concern in addition to receiving referrals from our regulatory partners. This enables us to initiate our own investigations and examinations or bring matters to the attention of our delegated examiners. This focus is leading to increasing coverage of FinCEN in areas of greater concern with less overlap of efforts.

最近，由于美国证券交易委员会（SEC）、美国金融业监管局（FINRA）等证券业监管机构要求对试图将综合账户用于非法目的的离岸经纪商进行更严格的审查，FinCEN、SEC和FINRA的工作人员与银行业监管机构的工作人员在一起讨论特定非法活动转移到银行业的可能性。这是一个跨监管机构的意识和关注必须跟上不法分子试图滥用金融体系的各种新方式的例子。在跨监管机构的协作方面，在该领域共享管辖权的每个监管机构都要关注自己最擅长的领域也很重要。在FinCEN，我们的执法部门一直在强调，除了接受监管合作伙伴移送的线索之外，要通过我们自己的分析和特别信息收集权力来识别需要关注的机构。这让我们能够自行发起调查和检查，或提请我们的委托检查机构注意。这种专注正导致FinCEN在更值得关注但工作重叠较少的领域的覆盖面不断扩大。

 

I hope that you have also recognized greater coordination among the regulators through the years with respect to rulemaking and guidance. The implementation of the Customer Due Diligence (CDD) and Beneficial Ownership rule is an example of this. The rulemaking itself took several years of cross-agency coordination, and now in the first year and a half of its implementation, such coordination is again needed.

我希望你们也认识到这些年来监管机构在规则制定和提供指引方面有了更好的协调。客户尽职调查（CDD）和受益所有权规则的执行就是一个例子。规则制定本身需要数年的跨机构协调，现在执行了一年半，需要再次推动这种协调。

 

FinCEN has always recognized that once a new rule goes into effect, it takes time for both the regulated and the regulator to address particular circumstances under the rule. In rulemaking, even a rulemaking with robust notice and comment, including public sessions and other input from industry such as the CDD and Beneficial Ownership rule, there will be unanticipated situations after the rulemaking goes into effect.

FinCEN始终认识到一旦新规则生效，受监管机构和监管机构都需要时间来应对新规则下的特殊情况。在规则制定过程中，即使有充足的通知和评论，包括公开会议和来自业界的其他意见（如客户尽职调查和受益所有权规则），在新规则生效后也会出现意料之外的情况。

 

Last summer, FinCEN issued additional guidance on some of those situations and issued some appropriate exceptive relief to the requirements, and we continue to engage with industry and the regulatory community to identify other issues that may be arising in the implementation of and examination for compliance with the rule.

去年夏天，FinCEN就其中一些情况发布了追加的指引（2019年7月22日《关于客户识别程序规则和受益所有权规则在某些介绍经纪商中的应用的指引》），并发布了针对这些要求的一些适当的例外救济。我们将继续与业界和监管机构接触，以确认在规则的执行中与合规性检查时可能出现的其他问题。

 

BSA Value

《银行保密法》价值

 

I want to now spend some time reiterating the value of the information that you provide to us and the value of your efforts more broadly to make the financial system resilient to illicit activity. Part of a strong culture of compliance is understanding how the information that you provide under the BSA is used. The more we communicate how BSA data is used to root out illicit financial activity and support law enforcement, the more we hope to motivate you to provide this vital information. It is not always a regulatory enforcement action that prompts compliance in this space. We understand through countless discussions with industry that you are looking for feedback to enable you to do a better job at a task in which you as AML professionals take pride.

我现在想花点时间重申你们提供的信息的价值，以及你们为使金融体系更广泛地抵御非法活动所做的工作的价值。强大的合规文化的一部分是要了解我们如何使用你们根据《银行保密法》提供的信息。我们越是多沟通如何使用《银行保密法》数据根除非法金融活动和支持执法，我们就越希望激励你们提供这些至关重要的信息。监管执法行动并非总是能促进该领域的合规性。我们从与业界无数次的讨论中得知，你们正在寻求反馈，以使你们能够更好地完成你们作为反洗钱专业人士引以为豪的任务。

 

As part of our feedback, let me provide you with some statistics:

作为我们反馈的一部分，让我向你们提供一些统计数据：

 

From the year that the first SAR-SF was filed in 2003, through the 2019 calendar year, the number of SARs filed annually by your sector has increased roughly eight-fold. This still represents a small fraction of the roughly two million SARs filed per year.

从2003年首次报送证券和期货业可疑活动报告（SAR-SF）起至2019年，你们的行业每年报送的可疑活动报告数量大约增加了8倍。这仍只占每年约200万份报送的可疑活动报告中的一小部分（对比：2018年中国反洗钱监测分析中心共接收报告机构报送的可疑交易报告160万份）。

 

FinCEN grants direct access to critical information reported by financial institutions to more than 13,000 agents, analysts, and investigative personnel from over 450 unique federal, state, and local agencies across the United States.

FinCEN授权来自全美450多个联邦、州和地方机构的13000多名特别探员、分析人员和调查人员直接访问金融机构报送的关键信息。

 

In addition, 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，全国共有100多个可疑活动报告（SAR）审查小组和金融犯罪特别行动组，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。

 

Each day, FinCEN, law enforcement, regulators, and others query this data approximately 30,000 times - that equates to an average of 7.4 million queries per year. Those queries touch 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.

每天，FinCEN、执法机构、监管机构及其他机构都会对这些数据进行大约3万次查询——相当于平均每年740万次查询。其中，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、以及其他许多用途作出回应或带来帮助。

 

The data is used to initiate investigations, expand existing investigations, and identify trends and focus resources, much as you saw yesterday in Laura Richardson’s discussion on what we can see in SARs on elder fraud. And while not every piece of reporting may contribute to a specific law enforcement action, FinCEN has on its website roughly 500 specific examples of how financial institution reporting has aided law enforcement cases. A portion of those examples were generated as a result of FinCEN’s annual Director’s Law Enforcement Awards. Since 2015, FinCEN has held an annual ceremony to recognize law enforcement agencies who have successfully used BSA reporting in their criminal investigations. Each year, FinCEN receives nominations from Federal, state, local, and tribal law enforcement agencies all over the country, with the criteria being that the law enforcement agencies must have utilized the BSA data to successfully pursue and prosecute their case. Reporting of institutions in this room has contributed to nominated and award winning cases, and FinCEN now sends out letters to those contributing financial institutions to make them aware of those contributions and to specifically thank them for their efforts.

这些数据被用来发起新的调查、扩大现有调查、确认趋势和集中资源，就像你们昨天在劳拉·理查德森关于老年人欺诈的可疑活动报告的讨论中看到的那样。尽管并非每份报告都有助于具体的执法行动，但FinCEN网站上有大约500个金融机构报告如何帮助破获执法案件的具体例子。其中一部分例子来自FinCEN年度主任执法奖项（Director’s Law Enforcement Awards）。自2015年以来，FinCEN每年举行一次典礼，表彰那些将《银行保密法》报告成功用于刑事调查的执法机构。每年，FinCEN都会收到来自全国各地的联邦、州、地方和部落执法机构的提名，标准是执法机构必须使用《银行保密法》数据来成功追查并起诉案件。在座各机构的报告为案件的提名和获奖作出了贡献，FinCEN现在向作出贡献的金融机构发出信函以便让他们了解这些贡献，并特别感谢他们的工作。

 

And don’t forget the deterrent value that your reporting and AML program efforts have. Think of how much easier it would be for criminals to spend and move their ill-gotten gains if you were not doing what you are doing in terms of identifying and scrutinizing your customers and their activities. At FinCEN, our BSA Value project is focused on chronicling all the ways in which BSA information is used, and coming up with a way to translate that value into metrics that will help us further refine our regulations and other efforts.

不要忘记你们的报告和反洗钱计划所具有的威慑价值。想想看，如果你们没有按照你们正在做的来识别和审查你们的客户及其活动，那么犯罪分子花掉和转移他们的不义之财会容易得多。在FinCEN，我们的《银行保密法》价值（BSA Value）项目专注于记录《银行保密法》信息的所有使用方式，并提出将该价值转化为指标的方法，以帮助我们进一步完善我们的法规及其他工作。

 

So please understand how much what you do matters. Without your efforts, there would be more victims of fraud, more victims of drug-related crimes and human trafficking, and more corruption. The integrity that you are responsible for maintaining in our financial system is a fundamental part of the rule of law that is so crucial to the success and security of our nation.

所以请理解你们所做的工作有多重要。没有你们的工作，将会有更多的欺诈受害者、更多的毒品犯罪和人口贩运受害者、以及更多的腐败。你们有责任在我们的金融体系中保持诚信，这是法治的基本组成部分，对我们国家的成功和安全至关重要。

 

Regulatory Landscape

监管环境

 

In shifting to a discussion about our current regulatory landscape, I want to share with you something that I raised on another occasion four years ago about what regulators experience when they encounter a changing landscape. It’s something to think about whenever we go through a period of change - whether the calls for change arise from a crisis of confidence in our system, or whether they stem from a round of new and rapid development in the industries that we regulate.

在谈到我们当前的监管环境时，我想和你们分享四年前我在另一个场合提出的问题，即监管机构在面对变革的环境时的体验是什么。每当我们经历一段变革时期时，我们都要思考这个问题——变革的呼声是来自于对我们体系的信任危机，还是来自于受监管行业的新一轮快速发展。

 

It hinges on the inevitable discussions as to whether government over-regulates or under-regulates industry. The popular perception is that whenever government steps into an issue, it tends to over-regulate, and that whenever it fails to step into an issue, it is under-regulating. From a regulator’s perspective, it is challenging to find the right balance.

这取决于政府对业界的过度监管还是监管不足这一不可避免的讨论。人们普遍认为，每当政府介入某个问题时，往往会过度监管，而每当政府未能介入某个问题时，就会监管不足。从监管者的角度来看，找到正确的平衡是一项挑战。

 

I picked up an idea on this topic several years ago from a training program for law enforcement and regulators. The idea is relatively straightforward: given the dynamic in which they operate, regulators may tend to under-regulate to avoid over-regulating. In other words, they may tend to under-utilize their authorities out of fear of over-regulating, or out of fear of raising new questions or potential challenges to their authority.

几年前，我从一个执法和监管人员的培训项目中得到了关于这个话题的想法。这个想法相对简单：考虑到其运作的动态性，监管机构可能倾向于监管不足，以避免过度监管。换句话说，他们可能出于害怕过度监管，或者害怕对自己的权力提出新问题或潜在挑战，而倾向于不充分行使自己的权力。

 

There is some wisdom to this approach. But in an area such as ours where we have developed a strong partnership with industry and where we believe that you are just as vested in our mission to thwart bad actors as we are, it is important for us to use our authorities fully.

这种方法有一定的道理。但在我们这样的领域，我们与业界建立了强大的合作伙伴关系，我们相信你们和我们一样肩负着打击不法分子的使命，因此我们必须充分行使我们的权力。

 

So many of the things that FinCEN has been emphasizing over the past few years - our increased use of 314(a) and promotion of 314(b) to enhance information sharing between government and industry and among industry participants themselves; our increasing use of Geographic Targeting Orders (GTOs); our increasing and more direct outreach to particular financial institutions; the way that we are using our advisories, guidance, and conditional excepted relief - all of these things reflect a decision at FinCEN to continue to think creatively about how we use our statutory authorities, our regulations, and our status as the USG’s Financial Intelligence Unit and the administrator of the Bank Secrecy Act. In each of these situations, we’ve chosen to be forward-leaning in our use or interpretation of our authorities.

过去几年中FinCEN一直在强调的许多事情——增加对《爱国者法案》314(a)的使用并推广314(b)，以加强政府与业界之间及从业者之间的信息共享；增加对定向地区法令（GTO）的使用；增加对特定金融机构的宣传及更直接的宣传；使用建议、指引和附条件例外救济的方式——所有这些都反映出FinCEN决定继续创造性地思考我们如何使用我们的法定权力、我们的法规、以及我们作为美国政府的金融情报机构（FIU）和《银行保密法》管理者的地位。在每种情况下，我们都选择在使用或解释我们的权力时保持前瞻性。

 

No system is perfect, and every system is in a perpetual state of evolution. We are right now in an evolutionary state with respect to ways in which our financial sector is dealing with new technologies and new payment systems, such as those that involve virtual currency.

世上没有完美的体系，每个体系都在不断进化。就我们的金融业应对新技术和新支付系统（如涉及虚拟货币的技术和支付系统）的方式而言，我们目前正处于进化状态。

 

On that point, let me take this opportunity to emphasize that actors working in these new systems for moving value are subject to the same AML principles and requirements as other financial institutions. Social media and messaging platforms and others now focusing on the establishment of cryptocurrencies cannot turn a blind eye to illicit transactions that they may be fostering. As we’ve said on other occasions, to the extent that the financial sector chooses to move forward with the opportunities that some of these emerging systems present, we are not going to allow it to slide backward on the protections and appropriate transparency that we have collectively worked so hard to weave into the financial system.

在这一点上，请允许我借此机会强调，在这些新的价值转移体系中工作的行为者和其他金融机构一样要遵守同样的反洗钱原则和要求。社交媒体和信息平台及其他目前正专注于创建加密货币的机构不允许对他们可能助长的非法交易视而不见。就像我们在其他场合说过的那样，如果金融业选择抓住这些新兴体系带来的机遇向前推进，我们就不会允许它在我们共同努力编织成的对金融体系的保护和适当透明度方面倒退。

 

We will judge emerging financial institutions on whether and how they make their systems resilient to, and report on, money laundering, terrorist financing, sanctions evasion, human and narco-trafficking, and other illicit activity.

我们将判断新兴金融机构是否及如何使其系统能够抵御并报告洗钱、kongbu融资、规避制裁、人口和毒品贩卖及其他非法活动。

 

Make no mistake about it, whether it is through existing rules and guidance or future rules and guidance, we will regulate in this space consistent with the existing principles underlying the BSA/AML regime. Industry will have to develop its new products and services to ensure appropriate transparency for law enforcement and national security purposes. And where that doesn’t happen, we have the ability to protect our financial system.

请不要误会，无论是通过现有的还是未来的规则和指引，我们都将在该领域按照《银行保密法》和反洗钱体制的现有原则进行监管。业界必须开发新产品和服务，为执法和国家安全目的确保适当透明度。这样我们就有能力保护我们的金融体系。

 

Something else that I want to bring to your attention with respect to trends in our regulatory environment is the focus on having more data and more metrics behind any changes that we make. I earlier mentioned the BSA Value project, which we began last year and which is still proceeding. The BSA Value project, through which many in industry have been asked to provide input, is our most comprehensive approach to date to measure all of the ways in which the data you provide is used.

关于我们监管环境的趋势，我还想提请你们注意的是，在我们所做的任何变革背后，都要关注更多的数据和更多的指标。我之前提到了我们去年启动的《银行保密法》价值项目，目前仍在进行中。《银行保密法》价值项目是我们迄今为止最全面的方法，通过该项目，许多业内人士都被要求提供意见，以衡量你们提供的数据的所有使用方式。

 

We need to have a thorough understanding of this as we consider future changes to the regulatory landscape. We want to make sure that industry efforts are well spent, and that we have a more efficient system for getting important and valuable information from industry to law enforcement and regulatory stakeholders. FinCEN’s steps in this regard are consistent with broader efforts in government to ensure data driven rulemaking and rational decision-making. We need firmer metrics to make better decisions. In the short term, this may slow the progress of certain categories of rulemaking and the issuance of certain types of guidance. However, in the long run, focusing on metrics that support our actions may actually lead to more streamlined rulemaking processes in the future.

在考虑未来监管环境的变革时，我们需要对此有一个全面的理解。我们希望确保业界的工作得到充分使用，并且有一个更有效的体系，能够将重要和有价值的信息从业界传递给执法和监管利益相关方。FinCEN在这方面的措施与政府为确保数据驱动的规则制定和理性决策所做的更广泛的工作是一致的。我们需要更可靠的指标来做出更好的决策。从短期来看，这可能会减缓某些类别的规则制定和某些类型的指引的发布。然而，从长远来看，专注于支持我们行动的指标实际上可能会在未来导致更精简的规则制定过程。

 

However, there continues to be situations where we have limited information, despite a need for appropriate regulatory oversight. Collection of beneficial ownership information at the corporate formation stage is an example. We know through significant anecdotal information that legal entities can be attractive avenues for facilitating illicit activity because of the current lack of transparency in beneficial ownership information.

然而，尽管需要进行适当的监管，但仍存在掌握的信息有限的情况。在公司成立阶段收集受益所有权信息就是一个例子。我们从大量的传闻信息中得知，由于受益所有权信息目前缺乏透明度，法律实体可能成为便利非法活动的有吸引力的渠道。

 

But because no beneficial ownership information is collected at the corporate formation stage, we really don’t have firm baselines as to what types of situations may be more or less risky. Solving the issue of appropriate collection and maintenance of beneficial ownership information is very much on the minds of Congress, and we continue to work with Congress on potential legislative solutions.

但是由于在公司成立阶段没有收集到受益所有权信息，我们对于什么类型的情况风险更大或更小确实心里没底。适当收集和维护受益所有权信息的问题能否得到解决，受到国会的高度关注。我们将继续与国会就可能的立法解决方案进行合作。

 

To the extent that beneficial ownership legislation results in a requirement to report to FinCEN, FinCEN, as it always does, would work with the reporting community to address concerns that the community may have. We do not take reporting efforts for granted and we strive to make the collections as painless and as efficient as possible. We would work with trade associations and others to ensure that any requirements and exemptions are as clear as possible; that filings are promptly acknowledged; that high risk and low risk situations are dealt with commensurately, and that the value of, and protections associated with, the information collection are well understood.

如果受益所有权立法要求机构向FinCEN报告，FinCEN将一如既往地与报告机构合作，以解决机构可能存在的问题。我们不认为报告工作是理所当然的，我们努力使收集工作尽可能轻松和高效。我们将与同业公会及其他方面合作，确保任何要求和豁免都尽可能明确；及时确认报告；对高风险和低风险情况进行相称地处理；并充分理解信息收集的价值和相关保护。

 

I want to close today by again reminding you of the importance of what you do. You are a critical part of maintaining the integrity of our financial system, which is a critical part of maintaining respect for the rule of law. The work that you do every day enables law enforcement to identify and take action against illicit actors from terrorists, to rogue regimes, to drug lords, to kleptocrats, to human traffickers, to fraudsters ripping off the elderly and abusing our health care system, and many others. What you do saves lives directly, and makes our lives better.

最后，我想再次提醒你们所做的工作的重要性。你们是维护我们金融体系完整性的关键部分，也是维护对法治的尊重的关键部分。你们每天所做的工作使执法机构能够识别并采取行动打击kongbu分子、流氓政权、毒枭、贪官、人贩子、诈骗老年人和滥用我们医疗保健系统的骗子、以及其他许多不法分子。你们所做的工作直接拯救了生命，让我们的生活更美好。

 

And in terms of making our lives better, I want to share a story with you. I have friends and family in different parts of the world. One time I was visiting a close friend in one country, whom I hadn’t seen for a while. I noticed that he seemed troubled when he was talking about his work. I asked him to tell me what was going on. He said he was involved in a public works project where he realized that substandard materials were being used illicitly, and when he raised it to his boss’s attention he was told to look the other way. In the jurisdiction where he was working, he had to look the other way. There were no protections for him and he had no faith that the system would eventually catch up with those that were cheating on the project.

关于让我们的生活更美好，我想和你们分享一个故事。我在世界各地有朋友和家人。有一次我去一个国家拜访一位好友，我有一段时间没见到他了。我注意到他在谈论自己的工作时似乎很烦恼。我问他发生了什么事。他说他参与了一个公共工程项目，之后他意识到这个项目非法使用了不合格的材料。当他向老板提出这个问题时，他被告知不要多管闲事。在他工作的司法管辖区，他不得不睁一只眼闭一只眼。他得不到任何保护，他也不相信这个体系最终会让那些在项目中作弊的人尝到苦果。

 

You might think that he would be able to shrug it off because it was taken for granted that it was just a part of life there, and that it wouldn’t bother him. The point is that it did bother him. Even though there was nothing he could do about it and he himself was not responsible, it weighed him down and eroded his faith in society. Don’t underestimate the costs of such an erosion, and don’t underestimate the value of your own roles in preventing it.

你们可能会认为他会对此不屑一顾，因为人们理所当然地认为这只是那里生活的一部分，不会困扰到他。问题是这件事确实困扰到他。尽管他对此无能为力，他也不需要对此负责，但这让他感到沮丧，并侵蚀了他对社会的信心。不要低估这种侵蚀的代价，也不要低估你自己在防止这种侵蚀中所扮演角色的价值。

 

The work that you do to safeguard our financial system, and as partners in our efforts to assist law enforcement, is part of the reason that we have more faith in our system than my friend had in his. No system is perfect and we have to deal with crime, fraud, and corruption here as they do elsewhere in the world, but you are an important and successful component in our efforts to fight it and to make the world a better place. Thank you for your efforts and thank you for your time this morning.

你们为保护我们的金融体系所做的工作，以及作为我们协助执法的合作伙伴所做的工作，是我们对我们的体系比我的朋友对他的体系更有信心的部分原因。世上没有完美的体系，我们必须像世界其他地方一样处理犯罪、欺诈和腐败，但你们是我们打击犯罪、欺诈和腐败并让世界变得更美好的工作中的一个重要和成功的组成部分。感谢你们的工作，感谢你们今天上午的时间。