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Money Laundering Awareness Handbook for Tax Examiners and Tax Auditors 2009 For more information Financial Action Task Force (FATF) www.fatf-gafi.org Centre for Tax Policy and Administration work on tax crimes and money laundering www.oecd.org/ctp/taxcrimes ORGANISATION FOR ECONOMIC CO-OPERATION AND DEVELOPMENT The OECD is a unique forum where the governments of 30 democracies work together to address the economic, social and environmental challenges of globalisation. The OECD is also at the forefront of efforts to understand and to help governments respond to new developments and concerns, such as corporate governance, the information economy and the challenges of an ageing population. The Organisation provides a setting where governments can compare policy experiences, seek answers to common problems, identify good practice and work to co-ordinate domestic and international policies. The OECD member countries are: Australia, Austria, Belgium, Canada, the Czech Republic, Denmark, Finland, France, Germany, Greece, Hungary, Iceland, Ireland, Italy, Japan, Korea, Luxembourg, Mexico, the Netherlands, New Zealand, Norway, Poland, Portugal, the Slovak Republic, Spain, Sweden, Switzerland, Turkey, the United Kingdom and the United States. The Commission of the European Communities takes part in the work of the OECD. Cover image © philipus - Fotolia.com Preface © OECD 2009 5 Preface The purpose of this handbook is to raise the awareness level of tax examiners and auditors on money laundering. It provides guidance in identifying money laundering during the conduct of normal tax audits. It also describes the resources and tools that are available for effective detection and deterrence. While the handbook does not detail criminal investigation methods, it does describe the nature and context of money laundering activities so that tax examiners and auditors can better understand how their contribution can assist criminal investigators in countering money laundering. Tax administrations can adapt the handbook to suit their particular circumstances and to take into account the varying roles that tax administrations have in relation to reporting unusual or suspicious transactions, receiving suspicious transaction reports and investigating money laundering offences. To aid this adaptation key areas of the handbook have been highlighted for “Country Specific Insertions”. While the aim of this handbook is to raise the awareness of tax examiners and tax auditors about the possible implications of transactions or activities related to money laundering and tax crimes, the handbook is not meant to replace domestic policies and procedures. This handbook is available on the CTPA website www.oecd.org/ctp/taxcrimes. Versions in different languages will also be available here. Table of Contents © OECD 2009 7 Table of Contents Introduction 9 Money Laundering 11 Role of Tax Examiners and Auditors 15 Money Laundering Indicators for Individuals 19 Tax Return Examination and Pre-Audit Indicators 23 Audit Indicators 27 Specific Indicators on Real Estate 31 Specific Indicators on Cash 35 Specific Indicators on International Trade 39 Specific Indicators on Loans 43 Specific Indicators on Professional Service Providers 47 Introduction © OECD 2009 9 Introduction Fighting crime Traditionally the job of fighting crime has focused on solving crimes. However, since the 1990s, crime fighters have also sought to deter criminals by paying more attention to the confiscation of proceeds of crime. And more recently, with the introduction of unusual or suspicious transaction reporting by the regulated sector, often the flow of money or goods is investigated even before a criminal offence has been detected. Why criminals need to launder money A person who commits a crime will initially try to prevent their actions from being noticed by the tax department, police and/or law enforcement authorities. If the person is arrested or taxed on the proceeds of crime, they will try to avoid having the criminal proceeds traced back to their origin and avoid their confiscation. When criminals want to spend the proceeds of their crime, they face a dilemma: how to spend or invest large sums of money without evidence of a legitimate source of income that could draw the attention of tax examiners or auditors. Alternatively, criminals’ ability to expend cash on the purchase and use of high value goods or investments may bring them to the attention of law enforcement authorities. The tax department can start a tax audit and issue a tax reassessment while law enforcement authorities can initiate a criminal investigation into the origin of the money. In order to be able to spend money openly, criminals will seek to ensure that there is no direct link between the proceeds of their crime and the actual illegal activities. They may also seek to construct a plausible explanation for an apparent legal origin of the money that they possess. In this way, criminals seek to “launder” their proceeds of crime before spending or investing it in the legal economy. Money Laundering © OECD 2009 11 Money Laundering Definition The Financial Action Task Force (FATF) is an inter-governmental body whose purpose is the development and promotion of policies to combat money laundering and terrorist financing. It is the body that sets and monitors international standards for anti-money laundering regulations. The FATF has defined “money laundering” as the processing of criminal proceeds to disguise their illegal origin in order to legitimise the ill-gotten gains of crime. PLACEMENT LAYERING INTEGRATIONPLACEMENT LAYERING INTEGRATION INTEGRATIONINTEGRATION INVESTMENTJUSTIFICATION •Change of Currency •Change of Denominations •Transportation of Cash •Cash Deposits •Wire Transfers •Withdrawals in Cash •Cash Deposits in Other Bank Accounts •Split and Merge Between Bank Accounts •Creating Fictitious Loans, Turnover/Sales, Capital Gains, Deeds, Contracts, Financial Statements •Disguise Ownership of Assets •Criminal Funds Used In Third Party Transactions •Liquidity - Cash at Hand •Consumption •Investments SOURCES OF INCOME OVERVIEW OF MONEY LAUNDERING GOAL Deposit Criminal Proceeds Into Financial System GOAL Conceal the Criminal Origin of Proceeds GOAL Create an Apparent Legal Origin for Criminal Proceeds GOAL Use Criminal Proceeds for Personal Benefit •Tax Crimes •Fraud •Embezzlement •Drugs •Theft •Bribery •Corruption Why combat money laundering? Criminals accumulate significant sums of money by committing crimes such as drug trafficking, human trafficking, theft, investment fraud, extortion, corruption, embezzlement and tax fraud. Money laundering is a serious threat to the legal economy and affects the integrity of financial institutions. It also changes the economic power in certain sectors. If left unchecked, it will corrupt society as a whole. Fighting money laundering serves several purposes. Money Laundering Awareness Handbook for Tax Examiners and Tax Auditors 2009 12 © OECD 2009 The social importance Crime causes tangible and intangible damage to third parties, individuals and society as a whole. Money laundering can result in reducing the public’s confidence in certain professions such as lawyers, accountants and notaries and economic sectors such as real estate, hospitality and banks and other financial institutions. Investing the proceeds of crime may also distort competition between businesses and entrepreneurs. Money laundering allows the criminal to start, continue and expand activities in legitimate sectors of the economy. It may create a perception that crime pays and may also have a stimulating effect on our youth starting a criminal career. To identify tax crimes Unusual transactions can be an indication of tax crimes in the past and can lead to the identification of those involved. To identify other crimes and criminals Taxing the income of criminals according to tax rules alone will not lead to the identification of potential money laundering. It will not stop crime from happening or from being profitable. The detection of unusual transactions may assist in identifying criminals and their illegal activities. Sharing information with law enforcement authorities can lead to the start of a criminal investigation. To locate and confiscate criminal assets Identifying unusual transactions can provide insight into the flow of money and the destination of laundered criminal proceeds into assets such as real estate, vehicles, yachts and bank accounts. This will assist law enforcement authorities in seizing those assets during a criminal investigation. Legal context In the vast majority of countries there is a legal framework for combating money laundering and it is a separate criminal offence in the penal code. The penal code states which activities in relation to proceeds of crime are forbidden and lists the relevant crimes covered, known as predicate offences to money laundering. Predicate offences can be defined as “all offences” named in the penal code or can be limited to “serious crime offences” or a threshold related to the penalty of imprisonment or a combination of these approaches. The legislation may include tax crimes as a predicate offence to money laundering. It is also possible that tax crimes are not mentioned as a predicate offence. This means that transactions with money solely derived from a tax crime (e.g. non reported sales) might not be considered as money laundering offences. This does not mean that the tax administrations in those countries have no role in combating money laundering. Money derived from crimes mentioned as a predicate offence could still be identified by tax examiners or auditors and there may also be tax implications. It may be appropriate to insert here country specific detail on the legal context. Money Laundering © OECD 2009 13 The money laundering process The objective of tax fraudsters and of those involved in a wide range of criminal activities is to disguise the source of money and to convert the “dirty money” and “wash it” into a form that will be difficult to retrace its origins such as placing the “dirty money” in bank accounts, real estate, stocks, insurance premiums and other assets, which can be used later without raising suspicion. Whether the crime is a tax crime or is related to trafficking in narcotics, illegal sales of weapons, corruption or any of a vast range of criminal activities, the basic process that money launderers use to turn illicit proceeds into apparently legal monies or assets is globally accepted as having three stages: placement, layering and integration. These are the three phases of money laundering. The integration phase may be further divided into two sub-phases: justification and investment. Placement The goal in this stage is to deposit criminal proceeds, generally cash, into a bank account at home or abroad. For this purpose, cash could be switched into other valuables like trade goods, diamonds, gold bars or cheques. It could also be exchanged into other currencies, in larger denominations and/or split up in smaller sums which allow easy transportation by cash couriers. The cash or other valuables can be transported abroad, away from the country where the crime was committed, to the country of residence of the criminal or a specific country where cash can be easily deposited or invested. Transportation can be by car, plane (passengers or cargo) or by using an underground banking system. For all of these acts, criminals can use third parties, either individuals or corporations. Money derived from fraud, like tax fraud or investment fraud, could easily be money held in a bank account and capable of being exchanged electronically. Not all criminal proceeds are in the form of cash or even money. Goods from theft can be exchanged for other valuables. Layering The goal in this stage is the concealment of the criminal origin of the proceeds. Therefore, money can be transferred and split frequently between bank accounts, countries, individuals and/or corporations. Money can also be withdrawn in cash and deposited into bank accounts with other banks. It is common to use bank accounts in countries with strict banking secrecy laws and to nominate offshore corporations as the bank account holders. Integration: Justification The goal in this stage is to create an apparent legal origin for the criminal proceeds. This can be done by: • Doing business with yourself (falsifying sources of income, capital gains and/or loans); • Disguising the ownership of assets, and • Using criminal proceeds in transactions with third parties. The money launderer creates an apparent legal origin of the money by fabricating transactions (invoices, bookkeeping and agreements), with the use of false and fabricated Money Laundering Awareness Handbook for Tax Examiners and Tax Auditors 2009 14 © OECD 2009 documents such as invoices, reports, contracts, agreements, deeds as well as written or spoken statements. Common justification methods used are: • Fabricating a loan: loan-back or back to back; • Fabricating a rise in net worth: buying and selling real estate and other items, fabricating casino winnings, lottery prizes, inheritance, etc.; • Disguising the ownership of assets and interest in businesses (constructions with foreign legal entities, e.g. offshore companies or relatives as legal owner); • Price-manipulating (over- and under-invoicing); • Manipulating turnover/sales by commingling illicit and legal sources of income. Integration: Investment The goal in this final stage is to use criminal proceeds for personal benefit. Cash or electronic money can be used for: • Safekeeping: cash on hand; • Consumption: day to day expenditures, lifestyle, jewellery, vehicles, yachts, art; • Investing: bank accounts, real estate, stocks, securities, receivables, funding of legal and illegal business activities. Criminals may want to display their wealth and wealthy lifestyle by acquiring “badges of wealth” such as luxury homes, vehicles, boats, jewellery, etc. Criminals will seek to launder the proceeds from their crimes to pay for these in order to avoid detection by the tax or law enforcement authorities. Money laundering trends The traditional methods of money laundering have centred on the use of cash based businesses and this remains an important area. However, criminals will continue to seek out innovative methods to exploit weaknesses in financial systems and to try to keep ahead of the investigators. Real estate, loans and trade based money laundering are preferred methods for criminals to launder the proceeds of crime and tax fraud. These are described later. The use of credit cards issued by offshore banks has increased and can expect criminals to explore the vulnerabilities of new technology based products such as electronic money and internet-based trading and gambling. Role of Tax Examiners and Auditors © OECD 2009 15 Role of Tax Examiners and Auditors Introduction The role of tax examiners or auditors in checking taxpayers’ books and records for tax assessments puts them in a unique position to identify not only tax crimes, but also money laundering and other financial crimes. Auditors can help combat money laundering by identifying and then reporting unusual or suspicious transactions in accordance with domestic law and practice. This handbook provides a tool for auditors to detect money laundering, but the identification of money laundering indicators in a case may also help auditors to detect past tax evasion. Raising knowledge and awareness Tax auditors or tax examiners are often well placed to identify the first signs of possible money laundering and tax crimes. Generally their education and training allows them to detect suspicious transactions. While the aim of this handbook is to raise the awareness of tax examiners and tax auditors about the possible implications of transactions or activities related to money laundering and tax crimes, the handbook is not meant to replace domestic policies and procedures. Rather, tax examiners or auditors will carry out their duties in accordance with the policies and procedures in force in their country. Tax examiners or auditors must be aware of the need to distinguish between appearance and reality. It is useful to remember the following distinctions:  Fact: an event or act whose reality has been established;  Assertion: an opinion in the form of a statement or document such as: invoices, loan agreements, deeds, tax returns;  Assumption: a presumption or a supposition;  Conclusion: a deduction made based on facts or assertions. Sorting the available information in this manner can assist tax examiners or auditors in avoiding conclusions based on assertions or assumptions instead of verified facts. The most important tool for tax examiners or auditors is to bring critical thinking to the forefront:  To evaluate the assertions made;  To question and investigate their own assumptions as a hypothesis; Money Laundering Awareness Handbook for Tax Examiners and Tax Auditors 2009 16 © OECD 2009  To draw conclusions based on their knowledge of the techniques used by money launderers and tax criminals. The importance of detecting unusual transactions The proceeds of a crime may become apparent to tax examiners or auditors. Such visibility is related to:  Cash movements such as transporting, exchanging, depositing or spending;  The use of known money laundering methods or processes;  The increase in income and/or capital gains;  Unusual possessions (e.g. works of art, expensive vehicles), unusual loan arrangements and increased prosperity that is not proportionate to legitimate income. Detection of “dirty” money focuses primarily on unusual transactions that indicate possible money laundering. ‘Unusual’ means that a transaction differs from the norms of a certain industry or the habits of an individual, taking into account their background, normal activities or declared income. Deviation from normal or expected behaviour may indicate risk. The greater the deviation in behaviour and the more frequent the occurrence of unusual situations, the greater the risk for money laundering. Subsequent assessment is required. In general, unusual transactions have certain characteristics, to make it possible to conceal and to justify the illegal origin of the money, the flow of money, the possession of the money or assets derived from it:  The fact that the origin of the funds is not clear;  The fact that the identities of the parties are not clear;  The transaction does not fit the person’s background or legal income, and  The fact that there is no economical or logical explanation for the transaction. To identify unusual transactions, these general characteristics are transformed into money laundering indicators:  Money laundering indicators for individuals  Tax return examination and pre-audit indicators  Audit indicators  Specific indicators on real estate  Specific indicators on cash  Specific indicators on international trade  Specific indicators on loans  Specific indicators on professional service providers. Role of Tax Examiners and Auditors © OECD 2009 17 The reporting of unusual transactions The reporting of unusual transactions by tax examiners or auditors will differ within jurisdictions and the requirement to report will be either mandatory or discretionary. All tax examiners and auditors should make themselves aware of these requirements so that