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The governance of the financial action task force: an analysis of power and influence throughout the years

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Abstract

The international fight against money laundering illustrates changes in global governance as a result of the increasingly cross-border nature of crime and the need it creates for all involved to cooperate. The economic priorities and security concerns that surround it contributed to the strong evolution of global governance in this area and the status of anti-money laundering as a shared problem. The creation of the Financial Action Task Force (FATF), its expansion and cementation throughout the years, is a good example of the many forces working together to responding to the demands of emerging criminal threats and trends. It offers a good illustration of how relationships in global governance have influenced FATF’s priorities and action and ultimately the way in which illicit financial flows are tackled. This analysis offers an overview of FATF’s network across time taking into account the role of states, international organisations, and the private sector in the decision-making processes. It argues that Great Powers – a small, but aligned, group of states of global economic relevance – are responsible for FATF’s direction and the international efforts against illicit financial flows. It suggests, however, that unlike what could be expected, their power is declining following the rise of private sector influence through resourceful, organised and transnational actions e.g. on information sharing.

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Notes

  1. “Actors’ interests are, [for the purpose of this analysis], understood as primordial [and fixed]; from these they derive policy preferences for different issues” (([1], p.241; See also, [2], p.404; [3]).

  2. This phenomenon has been extensively studied at the UN level by the Global Policy Forum. See https://www.globalpolicy.org/corporate-influence/52644-gpf-analysis-on-corporate-influence.html See also [11]

  3. International organisations include the IMF, World Bank, FATF, UN, OECD and the EU. State representatives were mainly from UK, USA and France.

  4. See [15]

  5. See for example, “Public Private Partnerships in research” Available at: http://ec.europa.eu/research/industrial_technologies/ppp-in-research_en.html

  6. As the author claims to be a great power includes the military ability to “put up a serious fight” research defines European Union countries as a ‘dependent’ great powers military wise.

  7. ‘The Group of Seven (G-7) is an informal forum of countries representing around half of global economic output. It has met regularly since 1976 to discuss key issues related to global economic stability. The G-7 comprises Finance Ministers and Central Bank Governors of 7 countries: Canada, France, Germany, Italy, Japan, the United Kingdom and the United States of America. Representatives of the European Union, including the EU Presidency and European Central Bank, as well as heads of international financial institutions also regularly attend’ [22].

  8. Interview with member state expert, March 2013.

  9. For example, FATF Presidencies to date match G-7 membership in 50% of the cases, and G-20 membership fully.

  10. The G-20 started in 1999 as a meeting of Finance Ministers and Central Bank Governors in the aftermath of the Asian financial crisis. Its membership comprises 19 countries plus the European Union. See, [33].

  11. Interview with FATF secretariat, January 2013.

  12. Russia’s involvement in Syria and the Ukraine; Brazil’s ousting of Dilma Roussef; India’s demonitization

  13. Interview with NGO representatives, March 2013.

  14. Kirton offers a good set of tables on G-7/8 collaboration with civil society and institutions created through time.

  15. Note the Russian Federation (listed), Austria and Turkey (warned they would be listed) were the closest to the NCCT process that any developed economy got to therefore representing the exception to the rule.

  16. “FATF has almost as many members as world countries”[author cit], David Lewis at “Disconnecting from Global Finance: A Conversation on De-risking in the Commonwealth, 10 August 2016. See more at: http://thecommonwealth.org/media/event/disconnecting-global-finance-conversation-de-risking-commonwealth#sthash.LBx6mxrf.dpuf”

  17. It should be noted that the lack of ‘impactful’ participation may be related to the fact that the Plenary discussions are, in themselves, biased towards the interests of major powers.

  18. Author nformal discussion with IGO policy officer, December 2017.

  19. See World Bank, Financial Inclusion. Available at: http://www.worldbank.org/en/topic/financialinclusion. And on de-risking. Available at: http://www.worldbank.org/en/topic/financialmarketintegrity/brief/de-risking-in-the-financial-sector.

  20. The authors refer to IOs as international organisations, not ‘intergovernmental organisations’. However for the sake of this argument the concept can be considered interchangeable.

  21. Interview with IFI official, April 2013.

  22. Ibid.

  23. Interview with IFI official, March 2013.

  24. Financial Sector Assessment Programs (FSAPs); Reports on the Observance of Standards and Codes (ROSC)

  25. Interview with IGO official, September 2012.

  26. Interview with IFI official, April 2013.

  27. The author was unable to find written register of the meeting or its conclusions.

  28. Although some evidence of the Banking Federation attempting to provide amendments to the first directive does exists. See, Federation Bancaire de la Communauté Européene, ‘Amended proposal for a Council Directive on prevention of use of the financial systems for the purpose of Money laundering’, Fax, L 15 MS/DZ, Nr 190, 13 February 1991. Author interviews confirm increase.

  29. Interviews with private sector representatives, March 2013, July 2012, and November 2012.

  30. See the private sectors responses to FATF consultations in the wakening of standard revisions. See, [81, 82]

  31. Author interviews with private sector representatives, July 2012.

  32. Corroborated by Interview with private sector representative, July 2012. See more on this topic in, [83]

  33. Interview with private sector representative, November 2012.

  34. UNSCR 2253 (2015) Available at http://www.un.org/press/en/2015/sc12168.doc.htm

  35. Interview with IGO official, July 2012.

  36. See FATF Annual Reports from 1990 to 1994. After this date the working group leadership ceased to be available.

  37. Author Interview with an international financial institution compliance official, March 2013.

  38. See G-20 cooperation with OECD on measures to “inchpin of a major overhaul of the international tax architecture, whose aim is fighting against tax evasion, ending bank secrecy and tax havens, as well as addressing massive tax avoidance by multinational corporations.” [86].

  39. The Panama Papers are a collection of documents leaked from a Panama based law-firm exposing numerous international schemes to hide proceeds of crime, avoid tax and circumvent the requirements of the international financial system [87].

  40. See FATF, Outcomes of the Plenary meeting of the FATF, Paris, 22–24 February 2017. Available at: http://www.fatf-gafi.org/publications/fatfgeneral/documents/outcomes-plenary-february-2017.html

  41. Author interviews with private sector representatives, 2015–2016.

  42. Author interview, August 2016.

  43. FATF, Outcomes of the Plenary meeting of the FATF, Paris, 22–24 February 2017. Available at: http://www.fatf-gafi.org/publications/fatfgeneral/documents/outcomes-plenary-february-2017.html

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Correspondence to Inês Sofia de Oliveira.

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The author is currently an advisor with the AML/CFT unit of the Portuguese Central Bank. The content of this study does not reflect the official opinion of the Central Bank. Responsibility for the information and views expressed in the study lies entirely with the author.

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de Oliveira, I.S. The governance of the financial action task force: an analysis of power and influence throughout the years. Crime Law Soc Change 69, 153–172 (2018). https://doi.org/10.1007/s10611-017-9749-4

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