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| Opinions of the General Office of the State Council on Improving the Regulatory Systems and Mechanisms of Combating Money Laundering, Financing of Terrorism, and Tax Evasion | | 国务院办公厅关于完善反洗钱、反恐怖融资、反逃税监管体制机制的意见 |
| (No. 84 [2017] of the General Office of the State Council) | | （国办函〔2017〕84号） |
| All member entities of the Inter-Ministerial Anti-Money Laundering Joint Meeting: | | 反洗钱工作部际联席会议各成员单位： |
| The regulatory systems and mechanisms of combating money laundering, financing of terrorism, and tax evasion (hereinafter collectively referred to as the "three combats") are an integral part of developing the rule of law with China's unique socialist characteristics and a modern financial regulatory system in China, an important guarantee for advancing the modernization of the nation's governance system and capability and maintaining economic and social security and stability, and an essential means to participate in global governance and expand the two-way openness of the financial industry. Since the issuance and implementation of the Anti-Money Laundering Law, China has made immense progress in the development of the "three combats" regulatory systems and mechanisms and marked achievements in the work, and basically brought them in line with generally accepted international standards. Nevertheless, it should be noted that there remain some prominent conflicts and problems in relevant fields, mainly including incomplete regulatory rules, inefficient coordination and cooperation mechanisms, a low degree of inter-departmental data and information sharing, inadequate capabilities of institutions with anti-money laundering obligations (hereinafter referred to as "obligated institutions") to perform their obligations, and a mismatch between China's participation and say in the international arena and China's international status. The following opinions are hereby offered with the approval of the State Council in order to advance the building of the "three combats" regulatory systems and mechanisms in an in-depth and sustained manner and improve "three combats" regulatory measures. | | 反洗钱、反恐怖融资、反逃税（以下统称“三反”）监管体制机制是建设中国特色社会主义法治体系和现代金融监管体系的重要内容，是推进国家治理体系和治理能力现代化、维护经济社会安全稳定的重要保障，是参与全球治理、扩大金融业双向开放的重要手段。反洗钱法公布实施以来，我国“三反”监管体制机制建设取得重大进展，工作成效明显，与国际通行标准基本保持一致。同时也要看到，相关领域仍然存在一些突出矛盾和问题，主要是监管制度尚不健全、协调合作机制仍不顺畅、跨部门数据信息共享程度不高、履行反洗钱义务的机构（以下简称反洗钱义务机构）履职能力不足、国际参与度和话语权与我国国际地位不相称等。为深入持久推进“三反”监管体制机制建设，完善“三反”监管措施，经国务院同意，现提出如下意见。 |
| I. General requirements | | 一、总体要求 |
| (1) Guiding ideology | | （一）指导思想。 |
| The spirit of the 18th CPC National Congress and the Third, Fourth, Fifth, and Sixth Plenary Sessions of the 18th CPC Central Committee shall be fully implemented, and under the guidance of the Deng Xiaoping Theory, important thoughts of "Three Represents," and the Scientific Outlook on Development, the spirit of a series of important speeches and new concepts, thoughts, and strategies on governance of the country from General Secretary Xi Jinping shall be carried out profoundly, the decisions and arrangements of the CPC Central Committee and the State Council shall be conscientiously implemented, the overall national security view shall be adhered to, and the requirements of advancing the modernization of the nation's governance system and capability shall be complied with, to improve the "three combats" regulatory systems and mechanisms. | | 全面贯彻党的十八大和十八届三中、四中、五中、六中全会精神，以邓小平理论、“三个代表”重要思想、科学发展观为指导，深入贯彻习近平总书记系列重要讲话精神和治国理政新理念新思想新战略，认真落实党中央、国务院决策部署，坚持总体国家安全观，遵循推进国家治理体系和治理能力现代化的要求，完善“三反”监管体制机制。 |
| (2) Basic principles | | （二）基本原则。 |
| Adhering to a problem-oriented approach and using joint forces: The mind shall be further freed, and problems existing in the "three combats" regulatory systems and mechanisms shall be researched in depth and solved effectively according to the basic national conditions and the needs in actual work. Anti-money laundering administrative departments, tax authorities, and public security authorities shall practically perform their duties, and the banking, securities, and insurance regulators under the State Council and other relevant entities shall actively join forces for the "three combats." Exploration shall be made for establishing "three combats" regulatory systems and mechanisms bonded by financial intelligence, using funds monitoring as the means, based on data and information sharing, and meeting the needs of state governance. | | 坚持问题导向，发挥工作合力。进一步解放思想，从基本国情和实际工作需要出发，深入研究、有效解决“三反”监管体制机制存在的问题。反洗钱行政主管部门、税务机关、公安机关要切实履职，国务院银行业、证券、保险监督管理机构及其他相关单位要发挥工作积极性，形成“三反”合力。探索建立以金融情报为纽带、以资金监测为手段、以数据信息共享为基础、符合国家治理需要的“三反”监管体制机制。 |
| Adhering to prevention and control as the base and effectively resolving risks: Risks shall be assessed comprehensively and scientifically, the allocation of regulatory resources shall be further optimized according to the level and distribution of risks, and the regulation in high-risk fields shall be strengthened. The risk assessment mechanism and monitoring and analysis system shall continue to be optimized, and the risk prevention system shall be improved, so as to effectively prevent and control the risks of money laundering, financing of terrorism, and tax evasion. | | 坚持防控为本，有效化解风险。开展全面科学的风险评估，根据风险水平和分布进一步优化监管资源配置，强化高风险领域监管。同时，不断优化风险评估机制和监测分析系统，健全风险预防体系，有效防控洗钱、恐怖融资和逃税风险。 |
| Adhering to the national conditions and providing service guarantees for two-way openness: The "three combats" legal system and regulatory rules shall be gradually established and improved based on the actual circumstances of risks of money laundering, financing of terrorism, and tax evasion in China. International cooperation shall be conducted under relevant international treaties or according to the principles of equality and reciprocity. International obligations that should be assumed by China shall be faithfully performed, international standards shall be strictly implemented, cross-border regulatory cooperation shall be strengthened, and the lawful rights and interests of China's financial institutions shall be practically protected, so as to safeguard the two-way openness of the financial industry. | | 坚持立足国情，为双向开放提供服务保障。根据国内洗钱、恐怖融资和逃税风险实际情况，逐步建立健全“三反”法律制度和监管规则。根据有关国际条约或者按照平等互利原则开展国际合作。忠实履行我国应当承担的国际义务，严格执行国际标准，加强跨境监管合作，切实维护我国金融机构合法权益，为金融业双向开放保驾护航。 |
| Adhering to administration by the law and maximizing the primary role of anti-money laundering institutions: The duties of relevant entities shall be determined in accordance with the law, and ensure that they fulfill their respective duties, take proactive action, and strictly control risks. The obligated institutions play a role of "first line of defense" in preventing money laundering, financing of terrorism, and tax evasion, which shall be underscored. | | 坚持依法行政，充分发挥反洗钱义务机构主体作用。依法确定相关单位职责，确保各司其职，主动作为，严控风险。重视和发挥反洗钱义务机构在预防洗钱、恐怖融资和逃税方面的“第一道防线”作用。 |
| (3) Objectives | | （三）目标要求。 |
| By 2020, a system of "three combats" laws and regulations adapting to the requirements of the socialist market economy, conforming to China's national conditions, and meeting international standards will have taken shape, and "three combats" regulatory coordination and cooperation mechanisms featuring well-defined duties, consistency between power and responsibility, and powerful cooperation will have been established, to effectively prevent and control risks of money laundering, financing of terrorism, and tax evasion. | | 到2020年，初步形成适应社会主义市场经济要求、适合中国国情、符合国际标准的“三反”法律法规体系，建立职责清晰、权责对等、配合有力的“三反”监管协调合作机制，有效防控洗钱、恐怖融资和逃税风险。 |
| II. Improving the working mechanisms | | |
| (4) Strengthening overall coordination and improving the organizational mechanism: The Inter-Ministerial Anti-Money Laundering Joint Meeting shall be further improved to coordinate the "three combats" regulatory work. Depending on the Inter-Ministerial Anti-Money Laundering Joint Meeting, the inter-departmental "three combats" organization and coordination mechanisms shall be enhanced to develop general strategies and major policies and measures, promote their implementation, guide international cooperation in the "three combats" fields, and strengthen regulatory cooperation. | | （四）加强统筹协调，完善组织机制。进一步完善反洗钱工作部际联席会议制度，统筹“三反”监管工作。以反洗钱工作部际联席会议为依托，强化部门间“三反”工作组织协调机制，制定整体战略、重要政策和措施，推动贯彻落实，指导“三反”领域国际合作，加强监管合作。 |
| (5) Researching and designing an assessment system of risks of money laundering and financing of terrorism and establishing a strategy formation mechanism for combating money laundering and financing of terrorism: Risk assessment shall positively play its fundamental role in discovering problems, improving systems and mechanisms, and allocating resources, and risk-based research on strategies for combating money laundering and financing of terrorism shall be conducted. A national assessment indicator system of risks of money laundering and financing of terrorism and the assessment mechanisms shall be established, and a working group for the assessment of risks of money laundering and financing of terrorism consisting of the anti-money laundering administrative departments, tax authorities, public security authorities, national security authorities, judicial authorities, the banking, securities, and insurance regulators under the State Council, and other relevant administrative agencies shall be assembled to regularly assess risks of money laundering and financing of terrorism. Oriented to the problems discovered in risk assessment, strategies for combating money laundering and financing of terrorism shall be formulated and regularly updated, the objectives at different stages, major tasks, and significant moves in combating money laundering and financing of terrorism shall be determined, division of tasks shall be specified, and the anti-money laundering regulation in high-risk fields shall be heightened. A multi-level assessment result application mechanism shall be established, and relevant entities and the obligated institutions shall, based on assessment results, pertinently improve their work against money laundering and financing of terrorism, so as to raise the resource allocation efficiency and the effectiveness of risk prevention and control. | | （五）研究设计洗钱和恐怖融资风险评估体系，建立反洗钱和反恐怖融资战略形成机制。积极发挥风险评估在发现问题、完善体制机制、配置资源方面的基础性作用，开展风险导向的反洗钱和反恐怖融资战略研究。建立国家层面的洗钱和恐怖融资风险评估指标体系和评估机制，成立由反洗钱行政主管部门、税务机关、公安机关、国家安全机关、司法机关以及国务院银行业、证券、保险监督管理机构和其他行政机关组成的洗钱和恐怖融资风险评估工作组，定期开展洗钱和恐怖融资风险评估工作。以风险评估发现的问题为导向，制定并定期更新反洗钱和反恐怖融资战略，确定反洗钱和反恐怖融资工作的阶段性目标、主要任务和重大举措，明确任务分工，加大高风险领域反洗钱监管力度。建立多层次评估结果运用机制，由相关单位和反洗钱义务机构根据评估结果有针对性地完善反洗钱和反恐怖融资工作，提升资源配置效率，提高风险防控有效性。 |
| (6) Enhancing transfer of leads and collaboration in case investigation and optimizing the crime crackdown cooperation mechanism: The communication and coordination between the anti-money laundering administrative departments and tax authorities on one side and the supervision authorities, criminal investigation authorities, and administrative agencies with law enforcement powers on the other side shall be strengthened, the suspicious clue cooperation mechanism shall be further improved, and the intelligence consultation and information feedback mechanisms shall be strengthened, to analyze the situations and trends of money laundering, financing of terrorism, and tax evasion and continuously optimize the anti-money laundering investigation strategies, methods, and technologies. Anti-money laundering administrative departments shall strengthen the transfer of leads to suspicious transactions and collaboration in case investigation, and relevant entities shall provide more timely feedback on the use of clues and the resulting investigation and punishment so as to join forces in the crackdown on money laundering, financing of terrorism, and tax evasion and maintain the financial order and social stability. | | （六）强化线索移送和案件协查，优化打击犯罪合作机制。加强反洗钱行政主管部门、税务机关与监察机关、侦查机关、行政执法机关间的沟通协调，进一步完善可疑交易线索合作机制，加强情报会商和信息反馈机制，分析洗钱、恐怖融资和逃税的形势与趋势，不断优化反洗钱调查的策略、方法和技术。反洗钱行政主管部门要加强可疑交易线索移送和案件协查工作，相关单位要加强对线索使用查处情况的及时反馈，形成打击洗钱、恐怖融资和逃税的合力，维护金融秩序和社会稳定。 |
| (7) Strengthening regulatory coordination and improving the regulatory cooperation mechanism: The anti-money laundering regulatory requirements shall be embedded in the industry regulatory rules, and a complete ex-ante, interim, and ex-post regulatory chain shall be built. The role of the Inter-Ministerial Anti-Money Laundering Joint Meeting shall be maximized in strengthening the coordination between anti-money laundering departments and financial regulators, improving the regulatory rules, policies, and measures, taking joint regulatory actions, sharing regulatory information, and coordinating cross-border regulatory cooperation. | | （七）加强监管协调，健全监管合作机制。在行业监管规则中嵌入反洗钱监管要求，构建涵盖事前、事中、事后的完整监管链条。充分发挥反洗钱工作部际联席会议作用，加强反洗钱行政主管部门和金融监管部门之间的协调，完善监管制度、政策和措施，开展联合监管行动，共享监管信息，协调跨境监管合作。 |
(8) Legally using government affair data and improving the data and information sharing mechanism: On the premise of compliance with laws and regulations and aimed at resource integration, exploration and research shall be conducted on the "three combats" data and information sharing standards and a statistical indicator system, and relevant entities' data provision responsibilities and data use privileges shall be specified. The development of a data and information sharing mechanism shall be advanced steadily, and while administration is conducted strictly by the law and trade secrets and individual privacy are protected, the building of relevant databases shall be advanced and all relevant parties shall be encouraged to participate in the sharing. An electronic network of relevant entities shall be created to provide support for achieving safe and efficient data and information sharing.
．．．．．． | | （八）依法使用政务数据，健全数据信息共享机制。以依法合规为前提、资源整合为目标，探索研究“三反”数据信息共享标准和统计指标体系，明确相关单位的数据提供责任和数据使用权限。稳步推进数据信息共享机制建设，既要严格依法行政，保护商业秘密和个人隐私，又要推进相关数据库建设，鼓励各方参与共享。建立相关单位间的电子化网络，为实现安全、高效的数据信息共享提供支撑。
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