9月8日，香港金融管理局公開表示，日前已向香港的本地銀行發(fā)函，重申香港反洗錢反恐怖融資方面的監(jiān)管原則，并提示這些機構(gòu)，不應(yīng)因?qū)彶榭梢傻南村X和恐怖融資活動，而導(dǎo)致正常的企業(yè)無法使用香港的銀行服務(wù)。

為了完整全面理解這份通知函的內(nèi)容，特將其編譯如下，以期與業(yè)內(nèi)分享

De-risking and Financial Inclusion

規(guī)避風(fēng)險與金融普惠

I am writing to draw your attention to concerns about financial inclusion that have arisen from recent actions of some AIs engaged in the process of “de-risking”. 

近期有部分機構(gòu)在金融普惠過程中，過度地采用“規(guī)避風(fēng)險”這一標(biāo)準(zhǔn)，為此，我局現(xiàn)致函各機構(gòu)。

The progressive tightening of international standards in combating money laundering (ML) and terrorist financing (TF) in the past few years has led to extensive enhancement of AIs’ anti-money laundering and counter-terrorist financing (AML/CFT) controls, including customer due diligence (CDD) processes for existing and new customers. Apart from the local requirements, some AIs, for a variety of reasons, need to also comply with requirements or standards mandated by their head offices or overseas authorities. While it is important to ensure that AML/CFT controls are sufficiently robust and comply with all the relevant regulatory requirements, the HKMA expects AIs to adopt a risk-based approach (RBA) and refrain from adopting practices that would result in financial exclusion, particularly in respect of the need for bona fide businesses to have access to basic banking services.

過去幾年，關(guān)于反洗錢反恐怖融資的國際標(biāo)準(zhǔn)日益嚴格，促使了各機構(gòu)大力加強相關(guān)的管控措施，包括就存量及新客戶進行的盡職調(diào)查程序。除恪守香港的政策規(guī)定以外，部分機構(gòu)基于各種原因亦遵照其總行或海外有關(guān)當(dāng)局的規(guī)定或標(biāo)準(zhǔn)。香港金融管理局重視各機構(gòu)的反洗錢反恐怖融資管控措施是否足夠穩(wěn)健及遵守相關(guān)監(jiān)管規(guī)定，但同時，也期望各機構(gòu)能夠采用風(fēng)險為本的方法行事，避免采取會導(dǎo)致金融排外的處理程序，尤其應(yīng)當(dāng)顧及正常的企業(yè)獲得基本銀行服務(wù)的需求。

Guiding principles of RBA  風(fēng)險為本的主要原則

An effective RBA in the implementation of AML/CFT controls means that AIs should identify, assess and understand the ML/TF risks to which they are exposed and take appropriate measures commensurate with those risks in order to mitigate them effectively. I would like to set out below the guiding principles for the implementation of the RBA in relation to CDD: -

基于風(fēng)險為本這一準(zhǔn)則有效地實施反洗錢反恐怖融資管控措施，指的是各機構(gòu)應(yīng)當(dāng)能夠識別、評估及了解自身所面對的洗錢以及恐怖融資風(fēng)險，并采取與之相吻合的適當(dāng)措施，以便有效地緩釋風(fēng)險。采用風(fēng)險為本的方式進行客戶盡職調(diào)查程序的主要原則如下：

Risk differentiation – The risk assessment processes should be able to differentiate the risks of individual customers within a particular segment or grouping through the application of a range of factors, including country risk, business risk, product/service risk and delivery/distribution channel risk. It is inappropriate for AIs to adopt a one-size-fits-all approach.

風(fēng)險區(qū)分：通過綜合考量一系列風(fēng)險因素（這其中包括了國家風(fēng)險、業(yè)務(wù)風(fēng)險、產(chǎn)品或服務(wù)風(fēng)險，以及交付或分銷渠道風(fēng)險等等方面）的方式進行風(fēng)險評估，且應(yīng)當(dāng)根據(jù)評估結(jié)果區(qū)別對待不同的客戶群，而不應(yīng)采取“一刀切”的做法。

Proportionality – Based on the likely risk level of a customer, AIs should apply proportionate risk mitigating and CDD measures. It is inappropriate for AIs to impose requirements disproportionate to the risk level of the customer, as this would result in undue burden on the customer and the AI concerned.

與風(fēng)險相符：各機構(gòu)應(yīng)當(dāng)根據(jù)客戶不同的風(fēng)險水平實施相應(yīng)的緩釋風(fēng)險及客戶盡職調(diào)查程序。而不應(yīng)當(dāng)實施與該客戶風(fēng)險水平不符的要求，否則對客戶以及各機構(gòu)自身均會造成過多負擔(dān)。

Not a “Zero Failure” regime – RBA does not require or expect a “zero failure” outcome. While AIs should take all reasonable measures to identify ML/TF risks at the account opening stage and, for existing customers, on an ongoing basis, it is unrealistic to expect that no ML/TF activities would ever occur through the banking system. AIs are not required to implement overly stringent CDD processes with a view to eliminating, ex-ante, all risks. Otherwise, such an approach would result in a large number of bona fide businesses and individuals not being able to open or maintain accounts. CDD is only one part of an effective AML/CFT regime. AIs are also required to implement a system that can monitor and detect suspicious transactions in order to report them to the relevant authorities and take the necessary mitigating measures, such as enhanced CDD. The HKMA’s supervisory stance is aimed at the effective implementation of AML/CFT systems by AIs and to ensure that there are no material failings in those systems, rather than aiming for nil ML/TF activities in the banking system.

非“零風(fēng)險”：風(fēng)險為本這一準(zhǔn)則并非要求或期望達到“零風(fēng)險”的結(jié)果。各機構(gòu)固然應(yīng)當(dāng)采取所有合理措施，在開戶時識別洗錢及恐怖融資風(fēng)險，并針對存量客戶持續(xù)進行此程序，但若是期望洗錢及恐怖融資活動在整個銀行體系內(nèi)完全絕跡卻是不切實際的。各機構(gòu)無需實施過嚴的客戶盡職調(diào)查程序，試圖事前杜絕所有風(fēng)險，否則會令大量正常的企業(yè)及個人無法開立或維持原有賬戶?？蛻舯M職調(diào)查只是有效對抗洗錢及恐怖融資風(fēng)險制度的一部分；各機構(gòu)戶亦須實施有關(guān)制度來監(jiān)測可疑交易，以便向有關(guān)當(dāng)局報告，并采取所必需的風(fēng)險緩釋措施，例如實施更嚴格的客戶盡職調(diào)查等。香港金融管理局的監(jiān)管期望是各機構(gòu)應(yīng)當(dāng)實施有效的反洗錢反恐怖融資制度，并確保有關(guān)制度不會出現(xiàn)重大的缺失，而并非以達到銀行體系內(nèi)絕無洗錢及恐怖融資活動為目的。

We note from cases that have been drawn to our attention that recently some AIs may have applied stringent CDD measures that are disproportionate to the likely risk level of the customers, resulting in many unsuccessful account opening applications and/or unpleasant customer experiences. Some requirements that are often quoted in the feedback conveyed to the HKMA are provided at Annex.

我局從獲取到的意見中發(fā)現(xiàn)，部分機構(gòu)近期可能采取了與客戶潛在風(fēng)險水平不相稱的嚴格盡職調(diào)查程序，導(dǎo)致不少開戶申請失敗及/或客戶的不快體驗。附件所列便是金融管理局獲取意見中某些過于嚴格的常見規(guī)定。

Interface with customers  與客戶的溝通

In applying appropriate and effective CDD measures, AIs should be mindful not to take steps that would undermine financial inclusion. Moreover, it is also important for AIs to ensure that customers are being treated fairly, in the following aspects: -

當(dāng)實施適當(dāng)且有效的客戶盡職調(diào)查程序時，各機構(gòu)應(yīng)當(dāng)注意不要采取可能削弱金融普惠成效的措施。此外，各機構(gòu)還須在以下方面確保公平對待客戶：

Transparency – Information and documentation requirements for CDD purposes should be clearly set out and easily accessible to new and existing customers. All retail banks are required to enhance the transparency of account opening processes by uploading basic information about the relevant procedures and information and documentation requirements on their websites. AIs should explain to customers the rationale for the information requested and endeavor to assist customers in taking steps or providing alternatives that can help satisfy the CDD processes and introduce review mechanisms for unsuccessful applicants.

透明度：各機構(gòu)應(yīng)當(dāng)清晰地列明客戶盡職調(diào)查程序所需的資料及文件要求，方便存量及新客戶查閱。所有零售銀行均須提高開戶過程的透明度，并在網(wǎng)站上發(fā)布開戶過程及有關(guān)的資料與文件。各機構(gòu)向客戶解釋要求提供有關(guān)資料的理由時，應(yīng)當(dāng)盡力協(xié)助客戶采取或提供其他有助于完成客戶盡職調(diào)查程序的方法，并為未能成功開戶的申請者提供適當(dāng)?shù)闹貙彊C制。

Reasonableness – CDD processes and documentation requirements of AIs should be relevant and pragmatic with respect to the customers’ background and circumstances. Furthermore, AIs should not use AML/CFT as the ground for closing or rejecting an account when it is actually for other considerations.

合理性：各機構(gòu)應(yīng)當(dāng)根據(jù)客戶的背景及狀況，做出相應(yīng)且務(wù)實的客戶盡職調(diào)查程序和文件要求。此外，各機構(gòu)不應(yīng)以打擊洗錢或恐怖融資為名，實際上卻基于其他因素關(guān)閉或拒開賬戶。

Efficiency – AIs should have appropriate arrangements in place to facilitate customers’ initiation of the account opening process. AIs are encouraged to introduce online applications if practicable. AIs should also maintain adequate communication with customers throughout the account opening process by, for example, providing interim updates about the progress of their applications (such as whether any documents remain outstanding), timely feedback of the results of their applications, and where an application is rejected, the reason for rejection as appropriate.

效率：各機構(gòu)應(yīng)當(dāng)有適當(dāng)?shù)陌才牛员闩c客戶進行銀行帳戶的開立申請。本局鼓勵各機構(gòu)在切實可行的情況下設(shè)立網(wǎng)上申請渠道。各機構(gòu)也應(yīng)當(dāng)在整個開戶過程期間與客戶始終保持足夠的溝通。例如，通知客戶有關(guān)申請進度（是否尚欠缺某些文件）、適時告知其申請結(jié)果，以及當(dāng)開戶申請被拒絕時，根據(jù)適當(dāng)?shù)那闆r及時地向客戶解釋拒絕開戶的理由。

Actions to be taken  應(yīng)采取的行動

AIs’ senior management should review their existing processes and practices to ensure that they are consistent with the principles outlined above. Where there are inconsistencies, the HKMA should be informed of the plans and timeline by which remediation measures will be taken. Where any requirements or standards mandated by an AI’s head office or overseas authority might conflict with the application of these principles, these should be reported to the HKMA with a view to resolving the issue. AIs should also provide adequate training to their front line staff to ensure clear understanding and consistent implementation.

各機構(gòu)高級管理層應(yīng)審視現(xiàn)有政策及操作流程，以確保符合上述原則；若有不符之處，則應(yīng)當(dāng)通知金融管理局有關(guān)糾正措施的計劃及時間表。若各機構(gòu)的總行或海外有關(guān)當(dāng)局所指定的規(guī)定或標(biāo)準(zhǔn)與上述原則有所矛盾，那么，則應(yīng)當(dāng)向金融管理局報告，以期妥善解決。各機構(gòu)亦應(yīng)為前線員工提供必要的培訓(xùn)，使得其清晰理解與掌握以及貫徹執(zhí)行。

This circular should also be brought to the attention of the board of directors in the case of a locally incorporated AI and the head of the regional/head office in charge of the governance and compliance functions in the case of a non-locally incorporated AI. The boards of locally incorporated AIs and senior management of regional/head offices of branches of foreign banks in Hong Kong should take a proactive role in ensuring that CDD processes comply with the principles of RBA and customer interface requirements as elucidated in this circular.

本函應(yīng)當(dāng)提交告知貴機構(gòu)董事會（若為本港注冊）及區(qū)域總部或總行的管理與合規(guī)部門主管（若為非本港注冊）。本港注冊機構(gòu)的董事會以及香港境外銀行分行的區(qū)域總部或總行高級管理層應(yīng)當(dāng)采取積極主動的措施，以確保客戶盡職調(diào)查程序符合本函所載的風(fēng)險為本原則及與客戶溝通方面的規(guī)定。

The HKMA will work with the banking industry on how identification of ML/TF risks and the implementation of AML/CFT requirements can be made more consistent and effective so as to lessen the side effects of de-risking. We are also working with the industry association and international standard setting bodies to reduce some of the burden associated with compliance with AML/CFT requirements through innovation and technology, including but not limited to the use of know-your-customer utilities.

香港金融管理局將會繼續(xù)與銀行業(yè)商討如何識別洗錢及恐怖融資風(fēng)險，并落實打擊洗錢及恐怖融資等金融犯罪更為一致的有效措施，從而減少“規(guī)避風(fēng)險”過程中產(chǎn)生的副作用。本局亦會與業(yè)界公會及制定標(biāo)準(zhǔn)的國際組織合作，通過創(chuàng)新科技降低因遵守反洗錢反恐怖融資規(guī)定所涉及的負擔(dān)，其中包括但不限于利用“專業(yè)信息機構(gòu)”提供的平臺協(xié)助完成客戶盡職調(diào)查程序。

Enquiries on this circular may be addressed to Mr Stewart McGlynn (smcglynn@hkma.gov.hk) (on implementation of RBA) and Ms Sarah Kwok (sarah_sn_kwok@hkma.gov.hk) (on customer interface requirements) respectively.

有關(guān)本函的咨詢，請聯(lián)絡(luò)麥敬德先生(smcglynn@hkma.gov.hk)(有關(guān)風(fēng)險本文的方法)或郭士雅女士(sarah_sn_kwok@hkma.gov.hk)(有關(guān)客戶溝通方面的規(guī)定)

Yours faithfully, 

Norman Chan 

Chief Executive

總裁

陳德霖

2016年9月8日

Annex  附件

CDD requirements applied by AIs often quoted in the feedback conveyed to the HKMA that are disproportionate to the likely risk level of the customers include: -

1）requiring all directors and beneficial owners of an overseas corporate to be present at account opening; 

2）mandating that all documents of an overseas corporate are certified by a certifier in Hong Kong; 

3）requesting a start-up to provide the same degree of detail on its track record, business plan and revenue projections as a long-established company; 

4）expecting a Hong Kong business registration certificate for all applicants or evidence of a Hong Kong office for all overseas corporates, irrespective of business model or mode of operation; 

5）requiring voluminous or very detailed information on source of wealth sometimes going back decades irrespective of the risks presented by the relationship or type of service offered (e.g. MPF account, basic banking services with small balances) which is difficult or impossible for the customer to provide; and 

6）rejecting account opening based on unreasonably high benchmarks such as expected or actual sales turnover.

在金融管理局獲取到的意見中，實施與客戶潛在風(fēng)險水平不符的盡職調(diào)查程序有一些案例，包括：

1）要求境外機構(gòu)的所有董事及實益所有人于開戶時在場；

2）規(guī)定境外機構(gòu)的所有文件都應(yīng)在香港完成見證； 

3）要求初創(chuàng)機構(gòu)提供于建立已久的公司相同詳細程度的業(yè)績、業(yè)務(wù)計劃及預(yù)計收入； 

4）要求所有申請人，無論企業(yè)經(jīng)營或運作模式，都須具有香港商業(yè)登記證，或所有境外機構(gòu)均須提供香港辦事處證明； 

5）不考慮有關(guān)的業(yè)務(wù)關(guān)系或服務(wù)類別 (例如強制性公積金計劃賬戶、小額賬戶的基本銀行服務(wù))涉及的不同風(fēng)險，卻一律要求就資金來源提供大量或極詳細的資料作證，往往涉及過去數(shù)十年時間，而客戶實際上難以甚至無法提供這些資料；及

6）基于一些不合理的標(biāo)準(zhǔn)(例如預(yù)期或?qū)嶋H營業(yè)額)而拒絕為客戶開立賬戶。