据FATF官网发布，当地时间2020年2月19日至21日，金融行动特别工作组（FATF）第三十一届第二次全体会议在法国巴黎召开，来自205个国家、地区和国际组织的800余名代表出席，这是中国担任轮值主席国期间的第二次全体会议。

会议就国际洗钱和恐怖融资风险政策、国际互评估、司法监控等方面问题进行讨论，并选举2020-2022年FATF轮值主席。

（以下摘自FATF官网）

FATF中国轮值主席刘向民于2020年2月19日至21日主持召开了FATF在中国任主席国期间的第二次全体会议。

Paris, 21 February 2020 - FATF President Xiangmin Liu of the People’s Republic of China, chaired the second Plenary under the Chinese Presidency of the FATF from 19-21 February 2020.

205个国家和地区以及国际组织的800多名代表讨论了下列议题：

More than 800 delegates, representing the global network of 205 countries and jurisdictions, as well as international organisations, discussed the following issues:

（目录）：

1、战略重点 Strategic Priorities

了解和扩大数字身份的应用Understanding and leveraging the use of digital identity

降低虚拟资产的洗钱和恐怖融资风险Mitigating the money laundering and terrorist financing risks of virtual assets

2、具体国家的进程Country-specific processes

互评估报告和后续报告Mutual evaluations and follow-up reports

韩国和阿拉伯联合酋长国的互评估报告Mutual evaluations of the Republic of Korea and the United Arab Emirates

美国的后续报告Follow-up report for the mutual evaluation of the United States

加强监控的地区Jurisdictions under increased monitoring

不再加强监控的司法管辖区名单：特立尼达和多巴哥共和国Jurisdictions no longer subject to monitoring: Trinidad and Tobago

新增加强监控的国家地区：阿尔巴尼亚、巴巴多斯、牙买加、毛里求斯、缅甸、尼加拉瓜、乌干达New jurisdictions subject to monitoring: Albania, Barbados, Jamaica, Mauritius, Myanmar, Nicaragua, Uganda

巴基斯坦为解决其反洗钱和反恐怖融资系统性缺陷问题而采取的行动 Pakistan’s actions in addressing deficiencies in its AML/CFT system

需采取行动的的高风险地区High-risk jurisdictions subject to a call for action

监控伊朗为解决其反洗钱和反恐怖融资系统性缺陷而采取的行动Monitoring Iran's actions to address deficiencies in its AML/CFT system

3、其他战略举措Other Strategic Initiatives

打击非法野生动物交易所得的洗钱活动Combating the laundering of proceeds of the illegal wildlife trade

促进和推动国家层面上更有效的监管Promoting and facilitating more effective supervision at national level

FATF全球网络互评估进程的战略回顾Strategic review of the FATF Global Network assessment processes

FATF 2020-2022年下届任期安排FATF Presidency 2020-2022

（正文）：

一、战略重点Strategic Priorities

1、了解和扩大数字身份的应用Understanding and leveraging the use of digital identity

每年数字金融交易的数量在迅速增长，需要更好的了解如何通过数字金融服务识别和验证客户身份。会议通过了一项关于数字身份的新指导文件。该指导文件旨在帮助政府机构和私营部门相关者更清晰地了解数字身份系统的运用原理，阐释了FATF对客户身份识别和验证以及持续尽职调查的要求，以及这些要求如何与数字身份系统的关键部分相匹配一致。同时阐述了数字身份认证的风险和优点，如提高金融普惠性。该指导文件是技术中立的，但提出了一个决策流程,以确定数字身份系统是否满足FATF对客户尽职调查的要求。FATF认识到创新为改善反洗钱和反恐怖融资工作所带来的潜力。健全的数字身份识别系统可以提高金融机构客户识别的可靠性、安全性和效率，并减少人工控制措施的弱点。

The rapidly growing number of digital financial transactions every year requires a better understanding of how digital financial services identify and verify their customers.The Plenary adopted a new guidance paper on digital identity. This guidance paper aims to help government agencies as well as private sector stakeholders develop a clearer understanding of how digital ID systems work. It explains the FATF’s requirements for customer identification and verification and ongoing due diligence and how these can align with key components of digital ID systems. The guidance sets out the risks and the benefits of digital ID, such as potentially increasing financial inclusion.The guidance is technology neutral but sets out a decision-process to determine whether a digital ID meets the FATF’s requirements for customer due diligence.The FATF recognises the potential that innovation offers to improve AML/CFT efforts. Robust digital ID systems can improve the reliability, security and efficiency of identifying individuals in the financial sector and reduce the weaknesses of human control measures.

2、降低虚拟资产的洗钱和恐怖融资风险 Mitigating the money laundering and terrorist financing risks of virtual assets

FATF长期密切关注其新标准的执行情况和影响，以应对虚拟资产的潜在洗钱和恐怖融资风险，包括在全面实施"传送规则"---即保证汇款方和收款方的透明度方面取得的进展。

The FATF has been closely monitoring the implementation and impact of its new standards to address the potential money laundering (ML) and terrorist financing (TF) risks of virtual assets, including the progress made towards fully implementing the “travel rule”, which requires transparency about the originator and beneficiary of payments.

FATF讨论了为期12个月来其新要求的实施和审查情况，并考虑了私营公司代表提议就其拟议的技术解决方案提出的最新进展情况。FATF将于2020年7月向G20报告对于'稳定币'相关的洗钱和恐怖融资风险的分析，以及FATF标准在“稳定币”中的应用。

The FATF discussed progress in its 12-month review of the implementation of the FATF’s new requirements, taking into account updates from private sector representatives on their proposed technical solutions. The FATF will report to the G20 in July 2020 on its analysis of ML/TF risks associated to so-called stablecoins and the application of the FATF Standards to them.

二、具体国家的进程Country-specific processes

1、互评估报告和后续报告Mutual evaluations and follow-up reports

（1）韩国和阿拉伯联合酋长国的互评估报告Mutual evaluations of the Republic of Korea (Korea) and the United Arab Emirates

FATF和亚太反洗钱工作组共同评估了韩国在打击洗钱和恐怖融资的措施。全会讨论了评估情况，认为韩国了解其所面临的风险，拥有一个健全的法律和体制框架，正在取得良好的结果。这些措施包括有效利用和拓展金融情报及追回犯罪所得。但韩国需要对非金融机构执行反洗钱和反恐怖融资措施和监管、强化监管、重点预防法人和协议安排被滥用于洗钱和恐怖融资，并优先开展调查和起诉洗钱活动。

The FATF and the Asia/Pacific Group on Money Laundering jointly assessed Korea’s measures to combat ML and TF. The Plenary discussed this evaluation and concluded that Korea understands the risks it faces and has a sound legal and institutional framework that is delivering some good results. These include the effective use and development of financial intelligence, and recovery of criminal proceeds. However, the country needs to implement AML/CFT measures and supervision to non-financial businesses, strengthen supervision, focus on preventing the misuse of legal persons and arrangements for ML and TF, and prioritise money laundering investigations and prosecutions.

全会还讨论了FATF和中东、北非金融行动特别工作组对阿拉伯联合酋长国的联合评估情况，认为阿联酋最近采取了许多措施以强化打击洗钱和恐怖融资体系，包括进行国家风险评估、制定反洗钱和反恐怖融资战略以及调查和起诉恐怖融资的有效措施。然而，阿联酋需要改进对洗钱和恐怖融资风险的认识，加强洗钱的调查、诉讼以及国际合作。还应更加重视对滥用法人和协议安排的防范和监督，并确保及时冻结与恐怖主义或大规模杀伤性武器相关的资产。以上报告将经过质量和一致性审查后于4月份发布。

The Plenary also discussed the joint FATF-MENAFATF assessment of the United Arab Emirates and concluded that the country has implemented many recent measures to strengthen its system to combat ML and TF, including by developing a national risk assessment, AML/CFT strategy and effective measures to investigate and prosecute TF. However, the country needs to refine its understanding of ML/TF risks, enhance ML investigations and prosecutions, and international cooperation. It should also better focus on preventing the abuse of legal persons and arrangements, supervision, and on ensuring that assets with links to terror or the financing of weapons of mass destruction are frozen without delay.These reports will be published after a quality and consistency review, in April.

（2）、美国的后续报告Follow-up report for the mutual evaluation of the United States

全会讨论了美国自2016年互评估报告以来取得的进展。同意对美国一项建议上的执行情况进行重新评级，以评估美国目前的技术合规性水平。FATF将适时发布后续报告，阐述美国为在强化打击洗钱、恐怖融资和大规模杀伤性武器扩散方面采取的行动。

The Plenary discussed the progress that the United States has made since its 2016 mutual evaluation report. The FATF Plenary agreed to re-rate the United States on one Recommendation to reflect the country’s current level of technical compliance. In due course, the FATF will publish the follow-up report, which sets out the actions that the United States has taken to strengthen its measures to combat money laundering and the financing of terrorism and proliferation of weapons of mass destruction.

2、加强监控的国家地区Jurisdictions under increased monitoring

加强监控的国家地区正积极与FATF合作，解决其打击洗钱、恐怖融资和扩散融资体系中的战略性缺陷。当FATF将一个国家列入加强监控名单时，就意味着该国已承诺在商定的时间内迅速解决已识别的战略性缺陷并接受更为严格的监控。

Jurisdictions under increased monitoring are actively working with the FATF to address strategic deficiencies in their regimes to counter money laundering, terrorist financing, and proliferation financing. When the FATF places a jurisdiction under increased monitoring, it means the country has committed to resolve swiftly the identified strategic deficiencies within agreed timeframes and is subject to increased monitoring.

（1）不再加强监控的国家地区名单：特立尼达和多巴哥共和国Jurisdiction no longer subject to increased monitoring: Trinidad and Tobago

FATF祝贺特立尼达和多巴哥共和国在解决FATF早先确定并列入其行动计划的反洗钱和反恐怖融资战略缺陷方面取得重大进展。特立尼达和多巴哥共和国将从FATF加强监控名单中移出，并将与加勒比金融行动特别工作组合作，继续加强其反洗钱和反恐怖融资体系建设。

The FATF congratulated Trinidad and Tobago for the significant progress it has made in addressing the strategic AML/CFT deficiencies identified earlier by the FATF and included in its action plan. Trinidad and Tobago will no longer be subject to the FATF’s increased monitoring process, and will work with the Caribbean Financial Action Task Force, of which it is a member, to continue to strengthen its AML/CFT regimes.

（2）新增加强监控的司法管辖区：阿尔巴尼亚、巴巴多斯、牙买加、毛里求斯、缅甸、尼加拉瓜、乌干达New jurisdictions subject to increased monitoring: Albania, Barbados, Jamaica, Mauritius, Myanmar, Nicaragua, Uganda

FATF将阿尔巴尼亚、巴巴多斯、牙买加、毛里求斯、缅甸、尼加拉瓜和乌干达列为存在反洗钱和反恐怖融资战略性缺陷的地区。上述国家地区分别与FATF制定了行动计划以解决其最严重的缺陷。同时，FATF对各司法管辖区为其行动计划作出的高级别政治承诺表示肯定。

The FATF has identified Albania, Barbados, Jamaica, Mauritius, Myanmar, Nicaragua and Uganda as jurisdictions with strategic AML/CFT deficiencies. Each jurisdiction has developed an action plan with the FATF to address the most serious deficiencies. The FATF welcomed their high-level political commitment to their action plans.

（3）巴基斯坦为解决其反洗钱和反恐怖融资系统性缺陷问题而采取的行动Pakistan’s actions in addressing deficiencies in its AML/CFT system

2018年6月，巴基斯坦作出高级别政治承诺，与FATF和APG合作，加强反洗钱和反恐怖融资体系建设的有效性，解决与反恐怖融资有关的战略性缺陷，此后，巴基斯坦的政治承诺在其行动计划中的若干领域取得进展，包括基于风险为本的监管，以及寻求国内外合作，以识别跨境现金流动。巴基斯坦应继续努力执行其解决战略缺陷的行动计划，包括：

Since June 2018, when Pakistan made a high-level political commitment to work with the FATF and APG to strengthen its AML/CFT regime and to address its strategic counter-terrorist financing-related deficiencies, Pakistan’s political commitment has led to progress in a number of areas in its action plan, including risk-based supervision and pursuing domestic and international cooperation to identify cash couriers. Pakistan should continue to work on implementing its action plan to address its strategic deficiencies, including by:

（1）在违反反洗钱和反恐怖融资相关要求的情况下，采取的恐怖融资风险管理和定向金融制裁方面的补救措施和处罚措施；

(1)demonstrating that remedial actions and sanctions are applied in cases of AML/CFT violations, relating to TF risk management and TFS obligations;

（2）主管部门需合作，查明并采取执法行动打击非法资金或价值转移服务；

(2)demonstrating that competent authorities are cooperating and taking action to identify and take enforcement action against illegal money or value transfer services (MVTS);

（3）在所有入境口岸实施跨境货币和无记名票据管制，包括实施有效、适当和劝诫性的处罚措施；

(3)demonstrating the implementation of cross-border currency and BNI controls at all ports of entry, including applying effective, proportionate and dissuasive sanctions;

（4）证明执法机构正在广泛查明和调查的恐怖融资活动，其中恐怖融资的调查和起诉对象针对的是特定的个人和实体，代表被列名个人或实体的人、以及受被列名个人或实体控制的人；

(4)demonstrating that law enforcement agencies (LEAs) are identifying and investigating the widest range of TF activity and that TF investigations and prosecutions target designated persons and entities, and those acting on behalf or at the direction of the designated persons or entities;

（5）有关恐怖融资的诉讼得到有效、适当和劝戒性的处罚措施；

(5)demonstrating that TF prosecutions result in effective, proportionate and dissuasive sanctions；

（6）有效执行针对联合国安理会第1267号和第1373号决议列名的恐怖分子及代表这些恐怖分子的人有效实施了定向金融制裁（具有全面的法律义务支持），包括防止资金的筹集和转移，查明和冻结资产（包括动产和不动产），禁止其获得资金和金融服务；

(6)demonstrating effective implementation of targeted financial sanctions (supported by a comprehensive legal obligation) against all 1267 and 1373 designated terrorists and those acting for or on their behalf, including preventing the raising and moving of funds, identifying and freezing assets (movable and immovable), and prohibiting access to funds and financial services;

（7）对定向金融制裁违法行为采取了执法行动，包括行政和刑事处罚，以及省级和国家当局的联合执法;

(7)demonstrating enforcement against TFS violations including administrative and criminal penalties and provincial and federal authorities cooperating on enforcement cases;

（8）证明对被列名个人所有或控制的设施、服务资金来源及资金用途清晰；

(8)demonstrating that facilities and services owned or controlled by designated person are deprived of their resources and the usage of the resources.

行动计划的所有项目均已过截止日期。尽管注意到巴基斯坦最近取得了显著进展，但鉴于巴基斯坦未能按照商定的时间内针对其国内的恐怖融资风险完成的行动计划表示关注。迄今为止，巴基斯坦基本上完成了27个行动项目中的14个，其余项目的进展程度不尽相同。FATF强烈敦促巴基斯坦在2020年6月前迅速完成其全部行动计划。否则，如果下一次全体会议不能取得重大和可持续进展，特别是在诉讼和惩罚恐怖融资方面，FATF将采取包括呼吁各成员国并敦促所有国家和地区建议其金融机构对与巴基斯坦相关的商业关系和交易予以特别关注。

All deadlines in the action plan have expired. While noting recent and notable improvements, the FATF again expresses concerns given Pakistan’s failure to complete its action plan in line with the agreed timelines and in light of the TF risks emanating from the jurisdiction. To date, Pakistan has largely addressed 14 of 27 action items, with varying levels of progress made on the rest of the action plan. The FATF strongly urges Pakistan to swiftly complete its full action plan by June 2020. Otherwise, should significant and sustainable progress especially in prosecuting and penalising TF not be made by the next Plenary, the FATF will take action, which could include the FATF calling on its members and urging all jurisdiction to advise their FIs to give special attention to business relations and transactions with Pakistan.

3、需采取行动的的高风险地区High-risk jurisdictions subject to a call for action

高风险地区在打击反洗钱、反恐融资和反扩散融资方面的制度建设存在重大战略性缺陷。对于被定义为高风险的国家，FATF呼吁并敦促所有成员国和所有国家地区采取强化的尽职调查措施，在最严重的情况下，呼吁各国采取反制措施，以保护国际金融体系免受来自该国的洗钱、恐怖融资和扩散融资风险的影响。

High-risk jurisdictions have significant strategic deficiencies in their regimes to counter money laundering, terrorist financing, and financing of proliferation. For countries identified as high-risk, the FATF calls on all members and urges all jurisdictions to apply enhanced due diligence, and in the most serious cases, countries are called upon to apply counter-measures to protect the international financial system from the ongoing money laundering, terrorist financing, and proliferation financing (ML/TF/PF) risks emanating from the country.

监控伊朗为解决其反洗钱和反恐怖融资系统性缺陷而采取的行动

Monitoring Iran’s actions to address deficiencies in its AML/CFT system

2016年6月，伊朗承诺解决其战略缺陷。伊朗的行动计划已于2018年1月到期。2020年2月，FATF宣布伊朗尚未完成行动计划。

In June 2016, Iran committed to address its strategic deficiencies. Iran’s action plan expired in January 2018. In February 2020, the FATF noted Iran has not completed the action plan.

2019年10月，FATF呼吁其并敦促成员国及所有国家和地区：要求对在伊朗设立的金融机构的分支机构和子公司加强监督审查; 推行强化的金融交易相关报告机制或金融交易系统性报告;对金融集团在伊朗的所有分支机构和子公司增加外部审计要求。

In October 2019, the FATF called upon its members and urged all jurisdictions to: require increased supervisory examination for branches and subsidiaries of financial institutions based in Iran; introduce enhanced relevant reporting mechanisms or systematic reporting of financial transactions; and require increased external audit requirements for financial groups with respect to any of their branches and subsidiaries located in Iran.

目前，鉴于伊朗未能根据FATF标准推行《巴勒莫公约》和反恐怖融资的国际公约，FATF全面解除暂停反制措施，并呼吁、敦促各成员国及所有国家和地区按照第19项建议对伊朗实施有效的反制措施。

Now, given Iran’s failure to enact the Palermo and Terrorist Financing Conventions in line with the FATF Standards, the FATF fully lifts the suspension of counter-measures and calls on its members and urges all jurisdictions to apply effective counter-measures, in line with Recommendation 19.

在行动计划全面完成之前，伊朗仍将被FATF纳入“高风险地区”。如果伊朗能按照FATF的标准推行《巴勒莫公约》和反恐怖融资的国际公约，FATF将决定下一步行动，包括是否中止反制措施。在伊朗采取必要措施解决行动计划确定的反恐融资缺陷之前，FATF将持续关注来自伊朗的恐怖融资风险，及其对国际金融体系构成的威胁。

Iran will remain on the FATF statement on [High Risk Jurisdictions Subject to a Call for Action] until the full Action Plan has been completed. If Iran ratifies the Palermo and Terrorist Financing Conventions, in line with the FATF standards, the FATF will decide on next steps, including whether to suspend countermeasures. Until Iran implements the measures required to address the deficiencies identified with respect to countering terrorism-financing in the Action Plan, the FATF will remain concerned with the terrorist financing risk emanating from Iran and the threat this poses to the international financial system.

三、其他战略举措 Other strategic Initiatives

1、打击非法野生动物交易所得的洗钱活动 Combating the laundering of proceeds of the illegal wildlife trade

全体会议全会讨论了中国担任主席国期间优先事项之一的打击非法贩卖野生动物相关资金流问题的进展情况，。讨论了该项目在分析常见供应链和支付方式方面的贡献和初步结论。最终的指导文件将于2020年6月发布，其中将包括在调查非法贩卖野生动物资金流动方面有经验国家的大量研究案例。

The Plenary discussed progress on one of its priorities under the Chinese FATF Presidency: to tackle the financial flows linked to the illegal wildlife trade. The Plenary discussed the contributions and preliminary findings of this project that aims to analyse common supply chains and payment methods. The final Guidance paper, which will include a large number of case studies from countries that have experience in investigating the financial flows from the illegal wildlife trade, will be published in June 2020.

2、促进和推动国家层面上更有效的监管 Promoting and facilitating more effective supervision at the national level

监管机构在确保国家制度监测的有效性和预防非法资金流动方面发挥着至关重要的作用。在实践中，正如互评中所强调的，监管并非总是能达到其目的。FATF讨论了11月在中国三亚举行的首届监管者论坛和1月在巴黎举行的虚拟资产服务提供商监督论坛的成果。这两项活动让专家们汇聚一起，，了解洗钱和恐怖融资监管薄弱的原因，并探讨如何使监督更加有效。下次监管者论坛会议将于今年5月举行。

Supervisors play an essential role in ensuring the effectiveness of national regimes to detect and prevent illicit financial flows. In practice, supervision is not always achieving its purpose, as highlighted in mutual evaluations. The FATF discussed the outcomes of its first Supervisors’ Forum held in Sanya, China in November and those of the VASP Supervisors’ Forum held in Paris in January. Both events brought together experts to understand the reasons for weaknesses in AML/CFT supervision and explore ways to make supervision more effective. A further Supervisors’ Forum meeting will take place in May.

本项活动有助于改进FATF的指导和建议。例如，FATF现在将制定风险为本的反洗钱和反恐怖融资监管指引。本指引将阐述监管机构如何评估其辖区内的洗钱和恐怖融资风险，以及如何根据这些风险制定监管方案。

These events contribute to improving FATF’s guidance and advice. For example, the FATF will now develop guidance on risk-based AML/CFT supervision. This guidance will set out how supervisors can assess ML/TF risks to their sectors and how they can develop supervision programmes based on these risks.

3、FATF全球网络互评估进程的战略回顾Strategic review of the FATF Global Network assessment processes

全体会议讨论了对互评估和后续进程进行战略回顾的进展情况。这项工作将帮助FATF未来在全球范围内的互评估进程作出决策部署。旨在提高FATF的工作效率和有效性，使评估和监测进程在以风险为本的基础上更加及时、有效。

The Plenary discussed progress in the strategic review of its mutual evaluation and follow-up processes. This work will result in decisions regarding the future assessment processes of the FATF and its Global Network. It aims to strengthen the efficiency and effectiveness of the FATF and make the assessment and monitoring processes more timely, effective and risk-based.

4、FATF 2020-2022年下届任期安排FATF Presidency 2020-2022

全体会议选举马库斯·普莱耶博士为下一届FATF主席。其任期将于2020年7月1日开始，他将是首个任期两年的FATF主席，普莱耶博士目前担任FATF副主席。他将继续担任该职务，直至其主席任期开始。届时全会将任命新的副主席。

The Plenary selected Dr Marcus Pleyer (Germany) to be the next FATF President. His term will begin on 1 July 2020, and he will be the first FATF President with a two-year term. Dr Pleyer currently holds the position of FATF Vice-President. He will continue in that role until the start of his term as President, at which point the FATF Plenary will appoint a new Vice-President.

（注：本文图片来源于FATF官方网站。）