UNITED NATIONS OFFSHORE FORUM
30TH-31ST MARCH, 2000
What is the GPML Forum
GPML Forum Framework of Minimum Standards
- The United Nations Global Programme against Money Laundering Forum (GPML Forum)
held in the Cayman Islands on 30th-31st March 2000,
hosted jointly by the United Nations Office for Drug Control and Crime Prevention
(UNODCCP) and the Cayman Government, brought together some 100 participants
from 45 jurisdictions.
- The GPML Forum is a new initiative within the UNODCCP Global Programme against
Money Laundering. Its objective is to obtain global commitment to internationally
accepted standards of financial regulation and anti-money laundering measures
as they apply to the provision of cross border financial services; these standards
are set out in the UN GPML Forum statement of minimum standards which is attached
to this communiqué. (Hereinafter "the minimum standards")
- The opinion was expressed at the Forum that for its objective to be achieved
the following principles should be adopted:
that there should be no sanction imposed on individual jurisdictions
for non-compliance with the accepted international standards in advance
of a full, fair, transparent and consultative process of evaluation, and
unless sufficient opportunity has been provided to make good any deficiencies
- The Forum in concluding its deliberations, supported the UNODCCP objective
of denying criminals access to global financial markets, and agreed
all international financial services centers should be invited
to enter - as soon as possible, and no later than 30 September 2000 -
into a formal governmental commitment to the aforesaid minimum standards;
that the practical application of this commitment would be
supported where necessary by a programme of technical assistance provided
by UNODCCP; and by a programme of research initiated by UNODCCP designed
to secure a deeper understanding of money laundering cross border in what
will continue to be a fast changing field;
that in the light of the current dynamic situation the positive
participative approach of the UN GPML Forum should be continued, and extended
in its coverage, in the future;
jurisdictions expressed the view that the UNODCCP should ensure
that the various international initiatives that involve a process of evaluation
of compliance with the accepted international standards should be undertaken
in a co-ordinated, fair and sufficient manner and in accordance with the
principles of natural justice.
5. Without prejudice to the agreement expressed above, presentations
and discussion in the Forum brought to light the following additional points:
high standards of financial regulation and anti-money laundering
measures do not inhibit, and indeed there is evidence that they encourage,
the growth of legitimate cross border financial services.
wherever possible the jurisdictions should seek to prevent
financial services providers from advertising their services in a way
that suggests that lower regulatory standards are available in the jurisdiction
in which they operate or which they are promoting.
jurisdictions differ in their size and available resources
and, therefore, the timetable for achieving compliance with the accepted
international standards will not necessarily be the same for all.
in the provision of cross border financial services the distinction
should not be drawn between so-called on-shore and off-shore jurisdictions
but between those that are compliant and those that are non-compliant
in the application of the accepted international standards.
there should be no barriers to the exchange of information
necessary for effective financial regulation and anti-money laundering
measures to be exercised on a global basis.
co-operation between jurisdictions is facilitated and encouraged
through memoranda of understanding, mutual legal assistance treaties and
seized asset sharing agreements can be a strong incentive for
co-operation in the pursuit of those engaged in financial crime.
providers of anti-money laundering technical assistance, whether
governmental or inter-governmental bodies, should co-operate to the greatest
extent possible to ensure the best use of resources, to address gaps in
coverage, and to avoid unnecessary overlap.
regulatory resources should be adequate to cope with the scope
and nature of the financial services being provided in the jurisdiction
and in any event, be sufficient to meet the minimum standards.
preventive action is less costly and more effective than enforcement
and therefore a regulatory regime that embraces rigorous authorization
and know your customer requirements is essential.
action should be taken to create an effective comprehensive
data base of the regulatory regimes and financial services activity licensed
in all jurisdictions.
THE UN GPML FORUM
- The UN GPML Forum (United Nations Global Programme against Money Laundering
Forum) is an ODCCP (Office for Drug Control and Crime Prevention) initiative
that will propose minimum operating requirements for preventing and deterring
infiltration of criminal proceeds into the cross-border financial services
industry. In the implementation of the minimum operating requirements set
out below the Informal Advisory Group is of the opinion that attention must
be focused on all jurisdictions that provide international cross-border financial
services, and not only those jurisdictions commonly identified as "offshore
- The UN is prepared to assist through technical assistance, training and mentoring
programs States committed to adoption of the following proposals. In the delivery
of this assistance, the UN is committed to excellence and will coordinate
its program with all other assistance providers to assure maximum beneficial
- The UN GPML Forum should express support for the anti-money laundering, regulatory
and supervisory principles and standards published by the [United Nations,
Basle Committee on Banking Supervision, IOSCO, IAIS, FATF, and G7].
- Further efforts should be made by all of the above referenced entities and
by the Financial Stability Forum to keep each other informed of their activities
so as to ensure effective coordination.
- Significant differences exist in the nature of business undertaken by each
jurisdiction and in their respective capacity to implement the minimum operating
principles and standards. The Global Programme against Money Laundering (GPML)
will tailor its training and technical assistance to meet the specific needs
of each participating jurisdiction.
Framework of Minimum Standards
All jurisdictions with active and developing cross-border financial services
sectors should, at minimum, have in place an achievable program that will provide
- POLITICAL COMMITMENT TO: 1, 2, 3
- 1988 UN Convention, The UN Political Declaration and Action Plan against Money
Laundering adopted at the Twentieth Special Session of the United Nations
General Assembly (Resolution S20/4 of 10 June 1998) and 1999 GPML Forum Minimum
- Financial Action Task Force: "Forty Recommendations"
- Basle Committee: "Core Principles for Effective Banking Supervision"
- Basle Committee: "The Supervision of Cross-Border Banking"
- G7 (Ministers’ Working Group on Financial Crime): Ten Key Principles
for the Improvement of International Cooperation Regarding Financial Crimes
and Regulatory Abuses
- G7 (Finance Ministers): "Information Sharing: Ten Key Principles"
- IOSCO: "Objectives and Principles of Securities Regulation"
- IAIS: [General principles applying to the supervision of international insurers
and insurance groups]
1 Experts comprising the Informal Advisory Group hold the view that a commitment
from all acceding governments should be obtained by way of a ministerial
2 The standards listed are those the Informal Advisory Group consider should
have general application. A commitment to additional standards may be called
for by individual organizations (e.g. the CFATF 19 Principles; Council of
Europe Conventions on Mutual Assistance; European Union Directives).
3 The standards listed are current. The framework will need to be kept under
review in the light of any changes in the standards (e.g. in the Financial
Action Task Force’s Forty Recommendations) or any new statement of
minimum standards, (e.g. by the G7 Financial Stability Forum; FATF Criteria
for Cooperating/Non-Cooperating Jurisdictions).
- ENACTMENT OF ESSENTIAL LEGISLATION COVERING 4
- All crimes anti-money laundering
- Money laundering countermeasures in financial services authorization and supervision
- International cooperation; appropriate gateways through secrecy legislation
or civil/common law
- An adequate framework of company law.
RESOURCES/ORGANISATION STRUCTURE IN PLACE TO PUT LEGISLATION/PRINCIPLES
INTO PRACTICAL EFFECT
- Financial services regulatory/supervisory structure providing for the authorization
and regulation/supervision of financial services on an independent basis (i.e.
free of political and private sector interference)
- An independent and functioning Financial Intelligence Unit together with a
procedure providing for cooperation between the financial service regulators/supervisors,
enforcement authorities (police and customs) and the legal services (prosecutors)
- Appropriate independent judicial services allied with sufficient anti fraud
and prosecution powers
- Procedures for international cooperation (MOUs, Mutual Legal Assistance Treaties
or Letters of Agreement)
- Application of "know your customer" requirements to all financial service
providers (banking, investment fund management, insurance, company and trust
administrators and [Internet service providers])
- Procedures for unusual and/or suspicious transaction reporting, investigation
and prosecution with appropriate immunities for those reporting
- Presence of an adequate number of experienced staff supported by appropriate
funding and effective training
- Appropriate enforcement processes
4 "Essential" legislation is considered by the Informal Advisory
Group to be that required to provide for the full and effective application
of the standards covered
by the required political commitment. This will need to be the subject of continuing
review in the light of the further development of international standards (e.g.
in respect of company service providers).
5 As required for membership of the Egmont Group.