Client Alert
Anti-Money Laundering
Corporate Investigations &
White Collar Defense
Economic Sanctions &
Embargoes
Anti-Money Laundering
Financial Services
May 17, 2016
A New Age of Transparency: U.S. Announces
Customer Due Diligence Requirements and
Other Key Initiatives
By Carolina A. Fornos, Aaron R. Hutman and Amanda Senske
On May 11, 2016, the Financial Crimes Enforcement Network (FinCEN), a
bureau of the U.S.
Department of Treasury, published its final rule addressing
Customer Due Diligence Requirements for Financial Institutions (CDD Rule).
Among other requirements, the CDD Rule will require banks, brokers or
dealers in securities, mutual funds, and futures commission merchants and
introducing brokers in commodities to collect information on the beneficial
owners or “real persons” behind a legal entity when it opens a new account.
The CDD Rule becomes effective on July 11, 2016, although compliance will be
required by May 11, 2018.
Originally initiated in 2012, the long-anticipated CDD Rule was fast-tracked this year and finalized on May
6, 2016, just 33 days after the release of the “Panama Papers” created shock waves around the globe by
revealing a secret world of shell companies used by wealthy individuals allegedly to hide assets. This is a
major step in a new age of transparency to prevent tax evasion, confront terrorist financing and weapons
proliferation, enforce sanctions, address corruption, and pursue drug traffickers and organized crime. This
alert explains the context of the CDD Rule, its specifics, and the risks it exposes across all industries—and
not just for financial institutions.
The CDD Rule and Its Effect on Requirements Under the Bank Secrecy Act
The Bank Secrecy Act, 31 U.S.C.
§ 5311, et seq. (BSA), was established in 1970 and is one of the most
important tools in the fight against money laundering. FinCEN imposes anti-money laundering (AML)
regulatory requirements on financial institutions pursuant to the BSA.
Unless exempted, financial institutions have been required to have AML programs that include, at a
minimum, (i) the development of internal policies, procedures, and controls; (ii) the designation of a
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compliance officer; (iii) an ongoing employee training program; and (iv) an independent audit function to
test programs. The requirements for AML programs include due diligence procedures, commonly referred
to as “Know Your Customer” (KYC) policies, which generally include a Customer Identification Program
(CIP), customer due diligence and ongoing monitoring.
The CDD Rule adds a new requirement that financial institutions identify and verify the beneficial owners
or “natural persons” behind legal entity customers or “shell companies” and other corporate forms,
including partnerships and limited liability companies. It also adds a fifth requirement to existing AML
obligations: financial institutions must implement customer risk profiles and conduct ongoing monitoring for
suspicious activity and, on a risk-basis, maintain and update customer information.
New Customer Due Diligence Requirements
In the wake of the “Panama Papers,” and in light of recent scrutiny on the use of shell companies to
purchase real estate, promulgation of the CDD Rule was expedited and the rule announced on May 6,
2016 as part of a series of transparency initiatives.
Who is subject to the CDD Rule?
As of now, the CDD Rule applies to “covered financial institutions,” referring to banks; brokers or dealers in
securities; mutual funds; and futures commission merchants and introducing brokers in commodities.
What does the CDD Rule Require?
The CDD Rule will focus on beneficial ownership of legal entities. It will: (A) require covered financial
institutions to establish and maintain written procedures that are reasonably designed to identify and verify
beneficial owners of legal entity customers; and (B) make explicit that AML programs require customer risk
assessment and certain ongoing monitoring and, where appropriate, updates to beneficial ownership
information.
Moreover, four core elements will now comprise the minimum standard of CDD.
These elements are: (i)
customer identification and verification; (ii) beneficial ownership identification and verification; (iii) an
understanding of the nature and purpose of customer relationships to develop a customer risk profile; and
(iv) ongoing monitoring and reporting of suspicious transactions and, on a risk-basis, maintain and update
customer information.1
Who is a “Beneficial Owner”?
Under the final CDD Rule, the definition of “beneficial owner” has two prongs:
ï®
An ownership prong, requiring identification of each individual who, directly or indirectly, through any
contract, arrangement, understanding, relationship or otherwise, owns 25 percent or more of the equity
interests of the legal entity; and
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A control prong, requiring the identification of an individual with significant responsibility to control,
manage, or direct a legal entity customer, including an executive officer, senior manager (e.g., a C-level
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The first requirement is already in existence. See 31 C.F.R. 103.121 (b) (setting forth the minimum requirements for the
“Customer Identification Program”).
The second requirement is new and introduced by the CDD Rule. The third and fourth
requirements have been previously implicitly required under the BSA—vis-à-vis risk-assessments and Suspicious Activity
Reporting—but are now expressly required under the CDD Rule.
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or senior officer, managing member, general partner or treasurer) or any other individual who regularly
performs similar functions.
Both prongs are required, which can include the identity of up to four individuals under the ownership
prong and at least one individual under the control prong. Where a trust owns 25 percent or more of the
equity interests of a legal entity customer, the beneficial owner shall mean the trustee.
How Do Financial Institutions Identify and Verify Beneficial Ownership?
To identify the beneficial owner(s), a covered financial institution must require certification of beneficial
ownership from an individual who opens an account on behalf of a legal entity. The financial institution can
obtain the required information either on a FinCEN certification form (Appendix A of the CDD Rule), or by
alternate means, provided the individual certifies to the best of his/her knowledge that the information is
accurate. Moreover, the financial institution can rely on the beneficial ownership information supplied by
the customer, provided that it has no knowledge of facts that would reasonably call into question the
reliability of the information.
Verification procedures must contain the same elements as those for
individual customers under a financial institution’s CIP program, except that, for beneficial owners, the
institutions may rely on copies of identity documents.
FinCEN offered two important clarifications. First, covered financial institutions do not need to go back and
seek certifications from customers for existing accounts—this requirement applies to new accounts.
Second, however, covered financial institutions must seek re-certification of beneficial owner information
for each new account opened by the same legal entity customer.
What Risk Assessment, Monitoring, Updating and Reporting Is Required?
The CDD Rule amends the AML program requirements for each covered financial institution to explicitly
include risk-based procedures for conducting ongoing due diligence and to understand the nature and
purpose of customer relationships in order to develop customer risk profiles. The customer risk profile
refers to the information gathered about a particular customer at account opening and is used to develop a
baseline against which customer activity is monitored and assessed for suspicious activity reporting.
This
can, but need not, include a system of risk ratings.
When a financial institution detects information (including a change in beneficial ownership information)
during the course of normal monitoring that is relevant to the customer’s risk, it must update the customer
information, including beneficial ownership information. There is no set requirement for periodically
updating beneficial ownership information, however.
Beneficial ownership information and monitoring based on customer risk profile can lead to Suspicious
Activity Reports (SARs) and provide information for currency transaction reporting (CTRs). This information
is also used for sanctions rules and screening to comply with Office of Foreign Assets Control (OFAC)
regulations.
Finally, beneficial ownership identification procedures must address situations in which the
financial institution cannot form a reasonable belief that it knows the true identity of the beneficial owner of
a legal entity customer, even after following the required procedures.
Are there Exemptions?
The CDD Rule provides for several exemptions. For example, certain nonprofit entities do not require
ownership certification since these entities may not have ownership interests, but certification is still
required for the control prong.
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When does the CDD Rule Go into Effect?
Compliance is not mandatory until May 11, 2018. However, delaying implementation of the CDD Rule until
then presents risks because some of the requirements under the CDD Rule have implicitly been required
of covered financial institutions. Further, lacking appropriate customer due diligence requirements exposes
companies to other regulators, such as OFAC.
A New Age of Transparency Is Here
The CDD Rule represents just one element of the U.S. government’s broader strategy to enhance financial
transparency.
The United States and other leading economies have been coordinating for many years to
expand financial transparency via the “Recommendations” of the Financial Action Task Force (FATF),
among others. Private-sector “gatekeepers” in the international financial system, like banks and other
covered financial institutions, have been asked to support a wide range of transparency and law
enforcement goals to address illicit activities. With U.S.
backing, a key update to the FATF
Recommendations in 2012 focused on customer due diligence and beneficial ownership.
This action dovetails with the recent announcements by the Treasury Department that it will send new
beneficial ownership legislation to Congress, which would (1) require U.S. companies to obtain and submit
beneficial ownership information at the time of creation to the Treasury Department and (2) clarify
FinCEN’s authority to collect information under Geographic Targeting Orders (GTOs) such as bank wire
transfer information. This effort is in addition to existing bills which have been introduced in both the House
and Senate addressing transparency issues with limited liability companies and other entities.2
To combat tax evasion, the Treasury Department also published a proposed rule on May 10, 2016, to
require an Employee Identification Number (EIN) and certain tax reporting and recordkeeping obligations
for single-member foreign-owned U.S.
entities. This proposed rule would help close a current loophole
allowing foreign persons to hide assets in U.S. accounts.
The Department of Justice also announced on May 5 that it plans to propose legislative amendments to
expand its authority to pursue foreign corruption cases, which will include a proposed amendment to allow
administrative subpoenas for records in money laundering investigations, and an amendment to expand
foreign money laundering predicates in order to allow prosecutors to pursue kleptocrats and other corrupt
officials directly.
In sum, rules and regulations focusing on transparency are expected to continue, as are enforcement
initiatives on money laundering, sanctions, and the FCPA, as well as efforts to combat tax evasion,
including through the use of the Foreign Account Tax Compliance Act (FATCA).
Increased cooperation
and sharing of information between nations are expected to continue to combat a wide range of criminal
activity.
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See H.R.4450, Incorporation Transparency and Law Enforcement Assistance Act, 114th Cong. (as introduced to the House
Committee, Feb. 3, 2016) and companion measure S.2489 (as read twice and referred to the S.
Committee on the Judiciary,
Feb. 3, 2016).
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Best Practices
In light of this new age of transparency:
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ï®
Implement a Know Your Customer program. Even if your entity is not covered by the BSA, knowing
your customers and business associates (and their beneficial owners) is crucial for compliance with
OFAC economic and trade sanctions (as highlighted in the CDD Rule), anti-corruption laws such as the
U.S. Foreign Corrupt Practices Act (FCPA), and U.S. export controls.
Beware of “red” flags.
Be diligent in asking questions to understand the persons or entities with whom
you are transacting. In light of heightened scrutiny on customer due diligence, failure to make
reasonable inquiries could later be viewed by law enforcement and prosecutors as evidence of potential
willful blindness and aiding and abetting money laundering.
ï®
Assess your risk. The 25 percent requirement for beneficial ownership is a floor and not a ceiling;
many banks request information on owners with as little as 10 percent interest.
Covered financial
institutions and other companies will need to tailor their due diligence requirements based on the nature
of their business and the risks associated with their industry.
ï®
Keep up to date on developments. The list of covered financial institutions under the current CDD
Rule is likely to expand. While the federal government’s definition of “financial institution” under the BSA
encompasses twenty-six categories from vastly differing industries, FinCEN has issued exemptions to
many of these categories.
Even financial institutions not currently subject to regulation, however, can be
brought into FinCEN’s jurisdiction—for example, “persons involved in real estate closings and
settlements” are currently exempt from the BSA’s requirement to establish an AML program, but are
now subject to new reporting requirements based on FinCEN’s GTOs.
Accordingly, conducting due diligence on beneficial owners is an issue not only for financial institutions
(including those currently exempt), but also for companies generally across all sectors of the economy.
If you have any questions about the content of this Alert, please contact the Pillsbury attorney with whom
you regularly work, or the attorneys below.
Carolina A. Fornos (bio)
New York
+1.212.858.1558
carolina.fornos@pillsburylaw.com
Aaron R. Hutman (bio)
Washington, DC
+1.202.663.8341
aaron.hutman@pillsburylaw.com
Mark R.
Hellerer (bio)
New York
+1.212.858.1787
mark.hellerer@pillsburylaw.com
Maria T. Galeno (bio)
New York
+1.212.858.1833
maria.galeno@pillsburylaw.com
Nancy A. Fischer (bio)
Washington, DC
+1.202.663.8965
nancy.fischer@pillsburylaw.com
William M.
Sullivan, Jr. (bio)
Washington, DC
+1.202.663.8027
wsullivan@pillsburylaw.com
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Thomas C. Hill (bio)
Washington, DC
+1.202.663.8073
thomas.hill@pillsburylaw.com
Marc H. Axelbaum (bio)
San Francisco
+1.415.983.1967
marc.axelbaum@pillsburylaw.com
Aaron S. Dyer (bio)
Los Angeles
+1.213.488.7321
aaron.dyer@pillsburylaw.com
Amanda Senske (bio)
New York
+1.212.858.1237
amanda.senskepillsburylaw.com
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© 2016 Pillsbury Winthrop Shaw Pittman LLP. All Rights Reserved.
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