金融行动特别工作组（FATF）第三十一届第三次全体会议成果

（以下摘自FATF官网）

Paris, 24 June 2020 – FATF President Xiangmin Liu chaired the third and last Plenary meeting under the Chinese Presidency. As the world continues to grapple with the devastating human and economic impact of the COVID-19 pandemic, the FATF held this Plenary meeting as a virtual event due to lockdown measures and travel restrictions. Nevertheless, the FATF kept up its important work, particularly as new money laundering and terrorist financing threats and vulnerabilities have emerged during the crisis.

当地时间2020年6月24日。中国担任金融行动特别工作组（FATF）轮值主席国期间的第三次也是最后一次全会会议于巴黎举行，FATF轮值主席刘向民主持了会议。在全世界努力应对新冠疫情对人类和经济造成的灾难性的影响期间，由于各国实施了隔离措施和旅行限制，本次会议以远程方式进行。尽管如此，FATF仍在继续进行打击洗钱和恐怖融资的重要工作，特别是在危机期间出现了新的洗钱和恐怖融资威胁和漏洞的情况下。

Delegates worked through an agenda of key issues, reflecting the decision the FATF took in April this year, to extend its assessment and follow-up process deadlines. 

代表们仔细研究的关键问题反映了FATF在今年4月作出的关于延长互评估和后续再评估工作的截止日期的决定。

1.  Strategic Initiatives

战略举措

★Mitigating the money laundering and terrorist financing risks of virtual assets.

减轻虚拟资产的洗钱和恐怖融资风险

★FATF Report to the G20 on so-called 'Stablecoins'.

FATF就关于“稳定币”向G20进行报告

2. Country-specific processes - Jurisdictions under increased monitoring

特定国家的进程——受强化监控的地区

3. Other Strategic Initiatives

其他战略举措

★Strategic review of the FATF Global Network assessment processes

FATF全球网络互评估进程的战略审查

★Money laundering and the Illegal Wildlife Trade

《非法贩卖野生动物与洗钱》研究报告

★Promoting and facilitating more effective supervision at national level

推动和促进国家层面更为有效的监督

★Strengthening measures to prevent the financing of proliferation of weapons of mass destruction

防止大规模杀伤性武器扩散融资的强化措施

★Discussion of the priorities under the German Presidency of the FATF

讨论在德国担任FATF主席国期间的优先事项

1. Strategic Initiatives

战略举措

★Mitigating the money laundering and terrorist financing risks of virtual assets 

减轻虚拟资产的洗钱和恐怖融资风险

The FATF discussed the results from a 12-month review that monitored how countries and services providers are implementing the FATF’s requirements on virtual assets and virtual asset service providers (VASPs).  

FATF讨论了一项为期12个月的，关于监控各国政府和服务提供商如何实施FATF就虚拟资产和虚拟资产服务提供商提出的要求的审查结果。

In June 2019, the FATF addressed the threat of criminal and terrorist misuse of virtual assets by finalising amendments to the FATF Recommendations and clarifying how its standards apply to virtual assets and VASPs. At the same time, the FATF committed to undertake a 12-month review of the implementation of its revised FATF Standards and established a Contact Group to engage industry and monitor industry-led efforts to enhance compliance with the FATF Standards and better safeguard the international financial system from abuse. The report finds that, overall, both the public and private sectors have made progress in implementing the revised FATF Standards, in particular in the development of technological solutions to enable the implementation of the ‘travel rule’[1] for VASPs. While the FATF need not amend its revised Standards on virtual assets and VASPs at this point in time, it did highlight the need for further guidance on virtual assets and VASPs. This will help members of the FATF Global Network, many of whom have not yet fully implemented the revised Standards, to make the necessary progress. The FATF will continue its enhanced monitoring of virtual assets and VASPs by undertaking a second 12-month review by June 2021 and consider whether further updates to the FATF Standards are necessary. In the meantime, the FATF will continue its engagement with the private sector and promote understanding of the ML/TF risks of virtual assets and VASPs, including with the publication of red flag indicators and case studies by October 2021. The 12-Month Review of the Revised FATF Standards on Virtual Assets/VASPs report will be published on the FATF website at the beginning of July.

2019年6月，FATF通过了对四十项建议的修订并澄清了FATF标准如何适用于虚拟资产和虚拟资产服务提供商，以及应对虚拟资产被犯罪分子和恐怖分子滥用的威胁。同时，FATF承诺就新标准的执行情况进行为期12个月的审查，并成立了一个与业界合作并监督行业行动的联络小组，以加强对FATF标准的遵守并更好地保护国际金融体系。报告指出，总体而言，公共和私营部门在执行FATF新标准方面都取得了进展，特别是在开发技术解决方案使虚拟资产服务供应商能够执行“传送规则”方面。尽管目前不需要就虚拟资产和虚拟资产服务提供商的新标准进行修订，但FATF强调了就虚拟资产和虚拟资产服务提供商进一步制定指引的必要性。这将帮助FATF全球网络成员国取得必要的进展，其中许多国家尚未充分执行新标准。FATF将于2021年6月前进行为期12个月的第二次审核，以继续加强对虚拟资产和虚拟资产服务提供商的监控，并考虑是否有必要对FATF标准进行进一步更新。同时，FATF将继续与私营部门合作，增强对虚拟资产和虚拟资产服务提供商的洗钱和恐怖融资风险的理解，包括于2021年10月前发布预警信号和案例研究。FATF就虚拟资产和虚拟资产服务提供商的新标准进行为期12个月的审查报告将在7月初于FATF官方网站上发布。

★FATF Report to the G20 on so-called 'Stablecoins' 

FATF就关于“稳定币”向G20进行报告

In October 2019, the G20 asked the FATF to consider the AML/CFT issues relating to so-called stablecoins, particularly so-called “global stablecoins” (i.e. those with potential for mass-adoption).  The Plenary approved the FATF’s report to the G20, which complements work by the Financial Stability Board and the International Monetary Fund.  Some so-called stablecoins, particularly those that have the potential to be mass-adopted, could potentially cause a shift in the virtual asset ecosystem and have implications for money laundering and terrorist financing risks. The report confirms that the FATF Standards clearly apply to so-called stablecoins and that no further amendments to the Standards are required at this time. However, the report also recognises that this is a rapidly evolving area and that it is essential to continue to closely monitor the ML/TF risks of so-called stablecoins, including anonymous peer-to-peer transactions via unhosted wallets. The report highlights four areas for further attention, including whether further updates to the FATF Standards are necessary and the development of guidance for jurisdictions on so-called stablecoins and virtual assets. The FATF Report to G20 on so-called ‘Stablecoins’ will be published on the FATF website at the beginning of July. 2019年10月，二十国集团要求FATF考虑与稳定币、特别是所谓的“全球稳定币”（即那些有可能被大规模应用的币种）有关的反洗钱和反恐怖融资问题。全会批准了FATF向G20提交的报告，该报告补充了对金融稳定委员会和国际货币基金组织的工作的内容。一些所谓的稳定币，特别是那些有可能被大规模采用的稳定币，可能会引起虚拟资产生态系统的变化，并对洗钱和恐怖融资风险产生影响。报告确认了FATF标准明确适用于稳定币，目前不需要对该标准进行进一步修改。然而，报告也认识到这是一个快速发展的领域，必须继续密切监控稳定币，包括通过非托管钱包进行的匿名对等交易的洗钱和恐怖融资风险。该报告强调了四个需要进一步关注的领域，包括是否需要对FATF标准进行进一步更新，以及为各地区制定关于稳定币和虚拟资产的指南。FATF向G20提交的关于“稳定币”的报告将于7月初在FATF官方网站上发布。

2. Country-specific processes - Jurisdictions under Increased Monitoring 

特定国家的进程——受强化监控的地区

In April, in response to the COVID-19 crisis, the FATF decided on a general pause in the review process for the list of High-Risk Jurisdictions subject to a Call for Action and Jurisdictions subject to Increased Monitoring, by granting jurisdictions an additional four months for deadlines.

4月，为应对新冠疫情危机，FATF决定暂停对采取呼吁对其采取行动的“高风险司法管辖区”和“受强化监控的司法管辖区”的审核进度，并给予上述地区额外四个月的宽限期。

However, Iceland and Mongolia requested to maintain their original schedule. In light of these requests, and the limited number of their remaining action plan items, the FATF agreed to proceed with the work with these two countries based on the original timelines. Thereafter, both countries reported back on the progress they have made since the February 2020 plenary. As a result, the FATF updated its statement with respect to these two countries only. See Jurisdictions subject to Increased Monitoring.

然而，冰岛和蒙古要求维持原定时间表。鉴于这些要求，以及行动计划剩余项目数量有限，FATF同意根据原定时间与这两个国家开展工作。此后，两国都报告了自2020年2月会议以来取得的进展。因此，FATF仅针对这两个国更新了其声明。

The remainder of the statements identifying Jurisdictions subject to Increased Monitoring and High-Risk Jurisdictions subject to a Call for Action remain unchanged from February 2020.

2020年2月的声明中其余识别为“受强化监控的司法管辖区”和“呼吁对其采取行动的高风险司法管辖区”保持不变。

3. Other strategic Initiatives

其他战略举措

★Strategic review of the FATF Global Network assessment process

FATF全球网络互评估进程的战略审查

Starting in June 2019, the FATF has been working to design the mutual evaluation, follow-up and ICRG processes for the next round of assessments which will start in a few years’ time.  At this Plenary, delegates reached a milestone in this review. The Plenary agreed on key elements of the framework for these future processes of the FATF and its Global Network. These will ensure that evaluations will remain comprehensive and be based on a level playing field, but will be more timely, have greater emphasis on effectiveness and will strengthen the risk-based elements of the assessment process. The FATF expects to complete this strategic review, including the revisions to the Methodology for assessments, in 2021. 

自2019年6月起，FATF一直在为几年后将要开始的下一轮评估设计互评估、后续再评估和国际合作审查小组流程。在本次全会上，代表们就战略性回顾的阶段性成果达成了里程碑。会议商定了FATF及其全球网络未来进程框架的关键要素。这些将确保评价工作继续保持全面，并以公平的竞争环境为基础，但将更加及时，更加注重效率，并将强化评估进程中的风险为本因素。FATF预计于2021年完成这项战略性审查，包括对评估方法的修订。

★Money laundering and the Illegal Wildlife Trade

《非法贩卖野生动物与洗钱》研究报告

The illegal wildlife trade is a major transnational organised crime, which generates billions of criminal proceeds each year. It threatens our biodiversity, in particular vulnerable species, it fuels corruption and has a negative impact on public health and the economy. One of the priorities of the Chinese Presidency was to focus on the financial aspects of this crime and to support jurisdictions to effectively go after profits involved in this criminal trade. Illegal wildlife trade is a global threat, that doesn’t just impact the jurisdictions where wildlife is killed or sold.  Criminals are misusing the formal financial sector, as well as front companies and the guise of the legal wildlife trade to launder their proceeds. However, many jurisdictions are still not sufficiently prioritising efforts to put a stop to the financial flows involved in illegal wildlife trade. Using input from jurisdictions across the FATF’s Global Network, private sector and civil society, this report finds most countries are not taking sufficient action, even those directly impacted by this crime. The report confirms that the FATF Standards are a useful framework to stop money laundering of illegal wildlife trade, but that greater political commitment and continued focus on this issue is needed. The report recommends practical actions that countries can take. These include ensuring that all relevant agencies have the necessary tools to investigate financial flows with links to the illegal wildlife trade, and coordination between authorities responsible for combatting wildlife crimes and those responsible for financial investigations. 

非法贩卖野生动植物是一项重大的跨国有组织犯罪，每年会产生数十亿美元的犯罪收益。它不仅威胁我们的生物多样性，特别是濒危物种，还加剧腐败，并对公共卫生和经济产生负面影响。中国担任主席国期间的重点工作之一便是关注野生动物犯罪的金融方面，并对各地区有效追查所涉此种犯罪收益提供的支持。非法贩卖野生动植物是全球性威胁，影响的不仅仅是那些野生动物被捕杀或出售的地区。犯罪分子正在用正规金融行业、公司和合法野生动物贸易的幌子清洗犯罪收益。然而，许多地区仍未充分优先采取制止与非法贩卖野生动植物有关的资金流。根据FATF全球网络、私营部门和社会团体的意见，报告认为，大多数国家，甚至是那些直接受到这一犯罪影响的国家都没有采取足够的行动。报告证实，FATF标准是制止非法贩卖野生动植物洗钱的有用框架，但需要作出更大的政治承诺并继续关注这一问题。报告建议各国可以采取实际行动。这些措施包括确保所有相关机构都有调查非法贩卖野生动植物相关资金流的必要工具，以确保负责打击野生动植物犯罪的当局与负责进行金融调查的当局之间的协调。

★Promoting and facilitating more effective supervision at national level

推动和促进国家层面更为有效的监督

Promoting and enabling more effective supervision by national authorities was a priority of the Chinese Presidency.  During this Plenary, delegates discussed the outcomes from the first Virtual Supervisor’s Forum, which brought together approximately 500 participants representing supervisory bodies from around the world. The virtual event was the last of three events organised during the Chinese Presidency which were all aimed at identifying current challenges in the area of supervision and exploring ways to make supervision more effective. The discussions at these events will contribute to a new FATF guidance paper on risk-based supervision, expected to be completed by June 2021.

促进和实现各国政府更有效监管是中国担任主席国期间的一项重点任务。在本次会议上，与会代表们讨论了第一届远程监管者论坛的成果，该论坛聚集了来自世界各地监管机构的大约500名参与者。这次远程活动是在中国担任主席国期间组织的三场活动中的最后一场，目的都是识别当前监管领域的挑战，并探索提高监管效率的方法。这些活动的讨论将有助于制订新的FATF关于风险为本监管的指导意见，该文件将于2021年6月完成。

★Strengthening measures to prevent the financing of proliferation of weapons of mass destruction 

防止大规模杀伤性武器扩散融资的强化措施

In June 2019, the FATF agreed to pursue further work to strengthen the FATF Standards on countering the financing of proliferation.  The FATF has now agreed to a public consultation of modifications to Recommendation 1 and its Interpretive Note, which aim to strengthen requirements for jurisdictions and private sector entities to identify, assess and mitigate the risks of potential breaches, non-implementation, or evasion of the targeted financial sanctions related to proliferation financing.  Following this consultation, the FATF will finalise the text of Recommendation 1 and Interpretive Note 1 for further discussion at its October 2020 meeting.

2019年6月，FATF同意继续开展进一步工作，以加强FATF打击扩散融资的标准。FATF现已同意就建议1及其释义修订稿公开征求意见，该建议旨在加强对各地区和私营部门主体识别、评估和降低潜在违规、不执行或逃避扩散融资相关定向金融制裁风险的要求。在公开征求意见后，FATF将最终确定建议1和释义1的方案，将在2020年10月的会议上进一步讨论。

★Discussion of the priorites unde the German Presidency of the FATF

讨论在德国担任FATF主席国期间的优先事项

The FATF Plenary discussed and approved the priorities of the FATF under the Presidency of Marcus Pleyer, which will commence on 1 July 2020. The German Presidency will be the first two-year Presidency since the FATF’s members adopted its revised mandate.

全体会议讨论并批准了在2020年7月1日起由Marcus Pleyer担任主席期间的FATF优先事项。德国将是FATF通过修订后的任期目标的首个两年轮值主席国。

A key priority under the German Presidency – beside addressing the challenges set by the Covid-19 pandemic, proceeding with the Strategic Review and further strengthening the global network - is to harness the potential of technology for the digital transformation of AML/CFT. Under the German Presidency, the FATF will further focus on the financing of ethnically or racially motivated terrorism, on tackling the financial flows from migrant smuggling and on the links between illicit arms trafficking and terrorist financing. Finally, the German presidency aims for the FATF to build on its work on the illegal wildlife trade by focussing on a wider range of environmental crimes. The FATF will publish the FATF Priorities under its German Presidency on 1 July. 

德国担任轮值主席国期间，除应对疫情带来的挑战、继续进行战略性审核和进一步强化全球网络外，一个关键的重点工作是利用技术潜力实现反洗钱和反恐怖融资的数字化转型。德国担任主席期间，FATF将进一步关注民族或种族主义恐怖融资、应对偷运移民相关资金流、以及非法武器贩运和恐怖融资的联系。最后，德国希望FATF在非法贩卖野生动植物工作的基础上，关注更广泛的环境犯罪。FATF将于7月1日发布德国担任主席国期间的工作重点。