The second Plenary of the FATF under the German Presidency of Dr Marcus Pleyer took place on 22, 24 and 25 February.

2021年2月22日、24日、25日， FATF主席Marcus Pleyer在巴黎主持召开了德国担任主席国期间的第二次全会。 

Delegates representing the 205 members of the Global Network and observer organisations, such as the IMF, the United Nations and the World Bank, worked through a full agenda to strengthen global safeguards to detect, prevent and disrupt the financial flows that fuel crime and terrorism. Due to the ongoing COVID-19 pandemic, the Plenary met virtually for the third time. As the pandemic continues to impact families, healthcare services, communities and economies worldwide, criminals continue to exploit the crisis for financial gain. Delegates continue to work to stamp out the laundering of proceeds of crimes including those linked to the COVID-19 pandemic. As countries focus on recovering from this crisis, it is more important than ever to fully and effectively implement the FATF Standards and take a risk-based approach to mitigating money laundering and terrorist financing risks.

来自全球网络205个成员国、以及国际货币基金组织、联合国和世界银行等观察员组织的代表审议了关于强化全球保障措施以便发现、防止和破坏助长犯罪和恐怖主义的资金流动的一系列议题。受新冠疫情影响，这次全会是第三次以远程方式召开。在疫情持续影响全球的家庭、医疗保健服务、社会秩序和经济的同时，犯罪分子正在继续利用这次危机来牟取经济利益。代表们将继续开展杜绝包括与疫情相关的犯罪收益在内的洗钱活动的工作。在各国致力于从这场危机中复苏之际，全面有效实施FATF标准并采取风险为本方法来降低洗钱和恐怖融资风险，比以往任何时候都更为重要。

During their discussions, delegates finalised work in a number of important areas. These included guidance to help countries take an effective, risk-based approach to supervision, guidance on investigating and prosecuting terrorist financing and work on illicit arms trafficking and terrorist financing, the latter two available to competent authorities. Delegates also agreed to release for public consultation a draft guidance to assist countries, financial institutions and DNFBPs in identifying, assessing and mitigating the risks of the financing of the proliferation of weapons of mass destruction, and updated guidance on virtual assets and virtual asset service providers.

讨论期间，参会代表商定了一系列重要领域的工作。包括帮助各国采取有效的风险为本的监管研究指引、关于调查和起诉恐怖融资的指引、以及关于非法武器贩运和恐怖融资的工作，后两项可供权威部门使用。参会代表还同意发布一份为协助各国、金融机构和特定非金融行在识别、评估和缓解大规模杀伤性武器扩散融资风险的指引征求意见稿，更新关于虚拟资产和虚拟资产服务提供商的指引征求意见稿。

The FATF also advanced its work on ongoing key issues. These include digitalisation, which has the potential to make anti-money laundering and counter-terrorist financing (AML/CFT) action more effective and efficient. In particular, the FATF agreed to start new work on digital transformation of AML/CFT for operational agencies. The FATF also continued discussions on the strategic review, which will shape the next round of mutual evaluations and make them more timely and risk-based. Delegates explored potential amendments to further strengthen the FATF requirements on beneficial ownership. The FATF’s mutual evaluations, as well as high-profile examples of abuse, demonstrate that criminals are still able to hide their illicit assets behind anonymous or complex legal structures. Delegates discussed how to improve transparency and ensure that up-to-date beneficial ownership information is available to authorities. The FATF also discussed the preliminary findings in its ongoing work to overcoming the challenges linked to the effective recovery of criminals’ assets, tackle money laundering from environmental crimes and the financing of ethnically and racially motivated terrorism.

FATF还推进了关于当前关键问题的工作。这包括数字化，它可能使反洗钱和反恐怖融资行动变得更加有效和高效。特别是，FATF同意启动在业务机构反洗钱和反恐怖融资数字化转型方面的新工作。FATF还继续就战略回顾进行了讨论，这将决定下一轮互评估并使之更加及时和风险为本。参会代表探讨了进一步强化FATF受益所有权要求的可能的修正案。FATF互评估、以及备受瞩目的滥用案例表明，犯罪分子仍然能够用匿名或复杂法律结构来隐藏其非法资产。参会代表讨论了如何提高透明度并确保当局能够获得最新的受益所有权信息。FATF还讨论了当前为克服与有效追回犯罪分子资产、打击环境犯罪洗钱、以及民族和种族主义恐怖融资有关的挑战而开展的工作的初步结果。

1. Strategic Initiatives

1、战略倡议

·    Improving risk-based supervision

·    改进风险为本的监管

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

·    降低虚拟资产洗钱和恐怖融资风险

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

·    强化大规模杀伤性武器扩散融资预防措施

·    Improving terrorist financing investigations and prosecutions

·    加强对恐怖融资的调查和起诉

·    Tackling illicit arms trafficking and terrorist financing

·    打击非法武器贩运和恐怖融资

2. Country-specific processes

2、特定国家进程

·    Mutual Evaluation of New Zealand

·    新西兰互评估报告

·    Impact of COVID-19 on Mutual Evaluation processes

·    疫情对互评估进程的影响

·    Jurisdictions under Increased Monitoring

·    应加强监控的司法管辖区

·    Strengthening the Global Network

·    强化全球网络

1. Strategic Initiatives

1、战略倡议

Improving risk-based supervision

改进风险为本的监管

The FATF approved new guidance to help improve effective, risk-based supervision. Supervisors play a crucial role in preventing money laundering and terrorist financing. They do this by helping their regulated entities, such as banks, accountants, money value transfer services, VASPs and other designated non-financial business and professions, understand the risks they face and how to mitigate them. Effective supervisors also ensure that regulated entities comply with their AML/CFT obligations and take appropriate action if those entities fail to do so.

FATF批准了新的指引，以帮助改进有效的以风险为本的监管。监管机构在防止洗钱和恐怖融资方面发挥着极为重要的角色。它们通过帮助银行、会计师、货币价值转移服务、虚拟资产服务提供商和其他特定非金融行业职业等受监管的实体理解其面临的风险以及如何降低这些风险来实现这一点。有效的监管机构还应当确保受监管实体遵守其反洗钱和反恐怖融资义务，并在这些实体未能做到时采取适当行动。

Taking a risk-based approach to supervision means addressing the full spectrum of risks, from higher to lower risk sectors but focusing resources where the risks are highest. A risk-based approach is less burdensome on lower risk sectors or activities which is critical for maintaining or increasing financial inclusion.

采取风险为本的监管方法意味着要应对从高风险领域到低风险领域的各种风险，但要将资源集中在风险最高的领域。风险为本的方法对风险较低的行业或活动来说负担较轻，而这些行业或活动对维持或提高普惠金融至关重要。

Transitioning from rules-based supervision to risk-based supervision takes time and can be challenging as the results of mutual evaluations have shown. It requires a change in supervisory culture. Supervisors need to have an in-depth understanding of the risks that their regulated entities face. They also need to have appropriate powers, capacity and resources as well as political and organisational support. The FATF’s new risk-based supervision guidance addresses common implementation challenges. It provides country examples and examples of strategies for supervising non-financial businesses and professions and virtual asset service providers (VASPs). The FATF will release this guidance in the first week of March.

由规则为本的监管向风险为本的监管转型需要时间，并且互评估结果表明，这可能具有挑战性。这需要监管文化的改变。监管机构需要深入理解受其监管的实体面临的风险。他们还需要有适当的权力、能力和资源，以及政治和组织支持。FATF新的风险为本的监管指引旨在应对普遍的实施挑战。它提供了国家实例以及特定非金融行业职业和虚拟资产服务提供商监管策略的实例。FATF将于3月第一周发布该指引。

Mitigating the money laundering and terrorist financing risks of virtual assets

降低虚拟资产洗钱和恐怖融资风险

The FATF has agreed to release an update to the FATF guidance for virtual assets and VASPs for public consultation. This guidance was released in June 2019 and accompanied amendments to the FATF Standards to clearly place AML/CFT obligations in relation to virtual assets and VASPs. The FATF Recommendations now require that VASPs are regulated, licensed and registered, and subject to effective systems for monitoring and supervision. The FATF’s 12-month review of the implementation of the revised FATF Standards on virtual assets and VASPs, highlighted that both the public and private sectors had made progress in implementing necessary measures. But, it also revealed a need for greater guidance to implement the revised requirements, including for low-capacity countries.

FATF同意发布更新版虚拟资产和虚拟资产服务提供商指引征求意见稿。该指引于2019年6月和FATF标准修正案同步发布，以明确规定与虚拟资产和虚拟资产服务提供商相关的反洗钱和反恐怖融资责任和义务。FATF建议目前要求对虚拟资产服务提供商进行监管、发放许可和办理登记，并实施有效的监控和监管制度。FATF对修订后的虚拟资产和虚拟资产服务提供商标准的实施情况进行的为期12个月的审查突出显示，公私部门在采取必要措施方面都取得了进展。但是，这也表明需要更多指引来帮助各国实施修订后的要求，包括低能力国家。

The FATF has now updated its guidance to address specific areas, including on how to apply the FATF Standards to so-called stablecoins, how public and private sectors can implement the travel rule, and how to address the risks of disintermediated peer-to-peer transactions. The FATF will publish the public consultation draft in March. Feedback from the consultation will inform the final guidance which the FATF expects to approve in June 2021. The FATF has also launched its second 12-month review which will look at the state of implementation globally of the FATF Standards on virtual assets, and identify any further challenges.

FATF目前已经更新了解决具体领域问题的指引，包括如何将FATF标准应用于稳定币、公私部门如何执行传送规则、以及如何应对去中介化点对等交易的风险。FATF将于3月发布草案征求意见稿。反馈意见将对FATF预计于2021年6月批准的最终指引带来影响。FATF还启动了对虚拟资产标准在全球实施情况的第二次为期12个月的审查，并确定任何进一步的挑战。

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

强化大规模杀伤性武器扩散融资预防措施

The FATF agreed new guidance on proliferation financing risk assessment and mitigation for public consultation. In October 2020, the FATF significantly strengthened its measures to prevent the financing of weapons of mass destruction (WMD) proliferation financing, a serious threat to international peace and security. At the same time, the FATF committed to develop guidance to assist countries and the private sector in assessing and mitigating the proliferation financing risk. This new guidance aims to clarify the implementation of the FATF requirements, including how to prepare a risk assessment in the context of proliferation financing, risk indicators for potential breach, non-implementation or evasion of proliferation financing sanctions obligations, and commensurate risk mitigation measures needed to address the identified risks, including for low-risk entities to avoid the unintended consequences of financial exclusion. It also addresses the supervision of proliferation financing risk assessments and mitigation. The FATF, will release the guidance for public consultation in March before finalising and approving it in June 2021.

FATF同意了新的关于扩散融资风险评估和缓释措施的指引征求意见稿。2020年10月，FATF显著强化了针对严重威胁国际和平与安全的大规模杀伤性武器扩散融资的预防措施。与此同时，FATF承诺制定指引，以协助各国政府和私营部门评估和降低扩散融资风险。该新指引目的在于明确如何实施FATF的各项要求，包括如何在扩散融资背景下准备风险评估施，可能违反、不执行或逃避扩散融资制裁义务的风险指标，以及应对已识别风险所需的包括低风险实体为避免金融排斥的意外后果在内的相应风险缓释措施。该指引还涉及对扩散融资风险评估和缓释措施的监督。FATF将于3月发布指引征求意见稿，并于2021年6月敲定和批准该指引。

Improving terrorist financing investigations and prosecutions

加强对恐怖融资的调查和起诉

Investigation and prosecution of terrorist financing is a fundamental but also challenging part of any effective CFT regime. Assessments conducted throughout the Global Network highlighted that many countries have major or fundamental weaknesses in investigating or prosecuting those who finance terrorism. The United Nations Security Council also expressed its concern in Resolution 2462 (2019), which calls for more effective investigation and prosecution of terrorism financing. The FATF has now finalised a guidance that provides best practices to national authorities to improve the effectiveness of their legal actions against terrorist financing. This guidance covers detection, investigative strategies for common types of terrorist financing activity, proving intent and knowledge, and confiscation of assets as a tool to disrupt terrorist financing. This confidential report will be made available for use by relevant government authorities. Government officials should contact their FATF national contacts for further details.

对恐怖融资的调查和起诉是反恐怖融资的一项基本的但也具有挑战性的工作。在整个全球网络进行的评估突出表明，许多国家在调查或起诉恐怖融资分子方面存在重大或根本性弱点。联合国安理会也在第2462（2019）号决议中表达了关注，该决议呼吁对恐怖融资进行更加有效的调查和起诉。FATF目前已经敲定了一份为各国当局提供最佳实践以提高其打击恐怖融资法律行动效果的指引。这一指引包含对于常见的恐怖融资活动进行侦查及调查的策略，证明了恐怖融资活动开展的意图以及打击恐怖融资活动的要点，并且说明了用没收财产作为打击恐怖融资的一种手段。。该机密报告将供相关政府当局使用。政府官员应当联系本国FATF联系人以了解更多详情。

Tackling Illicit Arms Trafficking and Terrorist Financing

打击非法武器贩运和恐怖融资

The illicit arms trade fuels conflicts around the world and impacts the lives of innocent civilians. At the start of the German Presidency in June 2020, the FATF made it a priority to further explore the links between illicit arms trafficking and terrorist financing. The FATF has now approved a report that will raise awareness across the Global Network, particularly in the context of national risk assessments, and help countries develop effective operational responses. A better understanding of illicit arms trafficking will help achieve one of the UN’s Sustainable Development Goals of reducing illicit arms flows. This confidential report, which includes input from across the Global Network, will be made available for use by relevant government authorities. Government officials should contact their FATF national contacts for further details.

非法武器贸易加剧了全球冲突，影响了无辜平民的生活。在德国于2020年6月接任主席国之初，FATF将进一步探讨在非法武器贩运与恐怖融资之间的联系列为优先事项。FATF目前已经批准了一份报告，该报告将提高全球网络的认识，尤其是在国家风险评估背景下，帮助各国制定有效行动对策。更好地理解非法武器贩运将有助于实现联合国减少非法武器流通的可持续发展目标之一。该机密报告包含来自全球网络的意见，将供相关权威政府使用。政府官员应当联系本国FATF联系人以了解更多详情。

2. Country-specific processes

2、特定国家进展

Mutual Evaluation of New Zealand

新西兰互评估报告

The Plenary discussed the joint FATF and Asia/Pacific Group on Money Laundering assessment of New Zealand’s measures to combat money laundering and terrorist financing in the FATF’s first ever virtual discussion of a mutual evaluation. The Plenary concluded that New Zealand’s measures to combat money laundering and terrorist financing are delivering good results, but the country needs to focus more on improving the availability of beneficial ownership information, strengthening supervision and implementation of targeted financial sanctions. New Zealand has a good understanding of the risks it faces and is achieving substantial results in its money laundering and terrorist financing investigations and prosecutions and use of financial intelligence. The country is particularly effective in the confiscation of criminal proceeds and its international cooperation with its international partners.

全会讨论了FATF和亚太反洗钱组织（APG）对新西兰打击洗钱和恐怖融资措施的互评估，这是FATF首次就互评估进行远程讨论。全会认为，新西兰打击洗钱和恐怖融资的措施取得了良好效果，但该国需要更加注重提高受益所有权信息的可获得性、强化对定向金融制裁的监督和执行。新西兰对面临的风险有着良好理解，并在对洗钱和恐怖融资进行调查和起诉及运用金融情报方面取得了实质性成果。该国在没收犯罪收益及与国际伙伴进行合作方面特别有效。

The FATF will publish the report in April after a quality and consistency review.

上述报告将在完成质量和一致性审查后于4月发布。

Impact of COVID-19 on Mutual Evaluation Processes

疫情对互评估进程的影响

The COVID-19 pandemic has continued to impact the FATF’s mutual evaluation and follow up processes. The FATF discussed how to proceed with the remaining mutual evaluations, some of which are already underway but where the on-site visit had to be postponed due to the current crisis. The FATF will continue to update its mutual evaluation schedule, with new dates for on-site visits as they are rescheduled. Work on follow-up reports, including those with technical compliance re-ratings, is proceeding as usual.

疫情继续影响着FATF互评估和后续再评估进程。FATF讨论了如何继续进行剩余的互评估项目，其中一些已经在进行中，但由于当前的危机，不得不推迟现场评估。FATF将继续更新互评估日程表，并重新安排新的现场评估日期。关于后续改进报告的工作，包括那些对技术合规性指标进行重新评级的报告在内，仍在照常进行。

Jurisdictions under Increased Monitoring

应加强监控的司法管辖区

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 extra checks.

应加强监控的地区正积极与FATF合作，以解决打击洗钱、恐怖融资和扩散融资制度中的战略性缺陷。当FATF将一个地区列入应加强监控名单时，意味着该国承诺在商定的时限内迅速解决识别的战略性缺陷并受到额外检查。

In line with the flexible procedures adopted in October 2020 to allow FATF to continue its monitoring programme in light of the COVID-19 pandemic, the FATF has updated its statements for countries under review.

根据2020年10月通过的允许FATF根据疫情形势继续其监控计划的灵活程序，FATF更新了对接受审查国家的声明。

·    New jurisdictions subject to increased monitoring: Burkina Faso, the Cayman Islands, Morocco and Senegal

·    新的应加强监控的司法管辖区：布基纳法索、开曼群岛、摩洛哥和塞内加尔

·    Jurisdictions under increased monitoring

·    应加强监控的地区

·    High-Risk Jurisdictions subject to a Call for Action (unchanged from February 2020)

·    呼吁对其采取行动的高风险地区（从2020年2月起保持不变）

Strengthening the Global Network

强化全球网络

The work of the FATF's partners in the global network, the FATF-style regional bodies (FSRBs), is vital to ensuring global effective implementation of the FATF Recommendations. The FATF continues to prioritise enhanced cooperation with the FSRBs in the common effort to fight money laundering, terrorist financing and proliferation financing effectively. Some FSRBs face challenges in completing their mutual evaluation programme, and this effort is further complicated by the COVID-19 pandemic.

FATF在全球网络中的合作伙伴—区域性反洗钱组织的工作，对确保FATF建议在全球得到有效执行至关重要。FATF将继续优先加强与区域性反洗钱组织的合作，共同努力有效打击洗钱、恐怖融资和扩散融资。一些区域性反洗钱组织在完成互评估计划方面面临挑战，而疫情使这项工作进一步复杂化。

To help FSRBs complete their current round of mutual evaluations, the FATF agreed to prioritise FATF member and observer support to FSRBs. This will enable each FSRB to successfully complete its remaining mutual evaluations and ensure the quality and consistency of its published reports.

为了帮助区域性反洗钱组织完成本轮互评估，FATF同意优先向区域性反洗钱组织提供FATF成员国和观察员组织支持。这将使每个区域性反洗钱组织能够成功地完成剩余的互评估项目，并确保其发布报告的质量和一致性。

（本文转自FATF官网）