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Viewing cable 06HELSINKI77, MONEY LAUNDERING AND FINANCIAL CRIMES IN FINLAND:
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| Reference ID | Created | Released | Classification | Origin |
|---|---|---|---|---|
| 06HELSINKI77 | 2006-01-27 10:22 | 2011-04-24 00:00 | UNCLASSIFIED | Embassy Helsinki |
This record is a partial extract of the original cable. The full text of the original cable is not available.
UNCLAS SECTION 01 OF 05 HELSINKI 000077
SIPDIS
DEPARTMENT FOR INL, EUR/ERA, EUR/NB and EB/ESC/TFS
JUSTICE FOR OIA and AFMLS
TREASURY FOR FINCENT
¶E. O. 12958: N/A
TAGS: PTER SNAR KTFN EFIN KCRM FI
SUBJECT: MONEY LAUNDERING AND FINANCIAL CRIMES IN FINLAND:
SUBMISSION TO PART II OF 2005-2006 INCSR
REF: 05 SECSTATE 210324
¶1. Summary: The following is Embassy Helsinki's submission
to the money laundering and financial crimes section of the
2005-2006 International Narcotics Control Strategy Report
(INCSR). End summary.
--------
OVERVIEW
--------
¶2. Finland is not a regional center for money laundering,
financial crime or illegal commerce. Over the past decade,
Finland repeatedly has placed first or second on
Transparency International's Corruption Perceptions Index,
indicating extraordinarily low perceived levels of
corruption, as determined by expert assessments and opinion
surveys. Nonetheless, Finnish authorities are concerned
about links to organized crime, as well as money laundering
arising from fraud or other economic crime. Terrorism
related fund-raising, to the extent that it exists, appears
to be less of a problem than in other European countries.
¶3. No government entities or officials are known to
encourage, facilitate or engage in laundering the proceeds
from illegal drug transactions, from other serious crimes,
or from terrorist financing. Neither have there been any
reports of Finland's financial institutions engaging in
currency transactions involving international narcotics
trafficking proceeds that include significant amounts of
United States currency or currency derived from illegal drug
sales in the United States. Cooperation between government
authorities and financial institutions is good.
¶4. Officials do not point to an increase in any particular
area of financial crimes in recent years. Criminal proceeds
laundered in Finland are predominantly in the local currency
(Euros) and continue to derive mainly from domestic criminal
activity. These funds are normally laundered through the
banking system and currency exchangers. Local narcotics-
trafficking organizations as well as a small number of local
organized crime groups control some of the money laundering
proceeds.
¶5. Money laundering represents about 10 percent of all
financial crimes in Finland. A majority of the cases (80%)
were related to economic crimes. Financial crimes offenses
have remained steady over the past three years
(approximately 1,600 cases per year). Between 1994 and
2002, 93 people were arrested, of which 83 were convicted
for money laundering.
----------------
FREE TRADE ZONES
----------------
¶6. Finland has four Free Zones and seven Free Warehouse
areas. The four designated Free Zones are located in Hanko
(Southern Customs District); Hamina and Lappeenranta
(Eastern Customs District); and Turku (Western Customs
District). The seven Free Warehouses are located in
Helsinki (Southern Customs District); Naantali, Pori, Rauma,
and Vaasa (Western Customs District); and Kemi and Oulu
(Northern Customs District).
¶7. In Finland, the duty-free free zone and warehouse
licenses have, in most cases, been granted to municipalities
or cities; however, one or several commercial operators,
approved by the customs districts, are usually in charge of
warehousing operations within the area. The duty-free
storage areas are available to both domestic and foreign-
owned companies. The Community Customs Code has harmonized
the free zone area regulations in the EU.
¶8. Finnish free trade zones often serve as transit points
for shipments of good to and from Russia. Many goods
originating in East Asia and destined for St. Petersburg or
Moscow are transported on the trans-Siberian railway to the
Lappeenranta Free Zone, where they are temporarily stored.
These are mostly high-value goods. There are no supervisory
programs and/or due diligence procedures in place to monitor
activities in the free trade zones. Nevertheless, there are
no indications that the free trade zones are being used in
trade-based money launderings schemes or by the financiers
of terrorism.
--------------------
TRANSBOUNDARY ISSUES
--------------------
¶9. Finland's ability to identify suspicious transactions
may be impaired by the absence of cross-border transaction
reporting requirements. Finnish authorities have addressed
the problem of the international transportation of illegal
source currency and monetary instruments in the Customs Act.
Beginning in June, 2007, Finland will implement a new EU
regulation, which requires border crossers to declare cash
in excess of $12,000.
¶10. Money laundering occasionally occurs within offshore
financial centers. Finnish legislation does not require
that non-resident companies maintain a physical presence in
Finland. It does prohibit, however, nominee (or anonymous)
directors and/or trustees. There are no off-shore casinos
or Internet gaming sites.
-----------
LEGISLATION
-----------
¶11. In 1994, Finland enacted legislation criminalizing
money laundering related to all serious crimes. The Act of
Preventing and Clearing Money Laundering (Money Laundering
Act), which passed in 1998, compels credit and financial
institutions, investment and fund management companies,
insurance brokers and insurance companies, real estate
agents, pawn shops, betting services, casinos, and most non-
bank financial institutions to report suspicious
transactions.
¶12. Management companies and custodians of mutual funds
were added as covered entities in the Money Laundering Act
in 1999. Apartment rental agencies, auditors, auctioneers,
lawyers, accountants, and dealers in high value goods were
added when amendments to the Money Laundering Act came into
force in 2003. Also included are the businesses and
professions that perform other payment transfers that are
not referred to in the Credit Institutions Act, such as
"hawala." According to the Money Laundering Act, a covered
party must identify customers, exercise due diligence, and
report suspicious activity to the Money Laundering Clearing
House (MLCH), Finland's financial intelligence unit or FIU.
¶13. Amendments to the Penal Code came into force on April
1, 2003. The amendments include the differentiation of
penalty provisions concerning money laundering and the
traditional receiving offense in order to clarify the law
where some actions could be punishable under both the
receiving offense and money laundering penalty provisions,
and to emphasize in legislation the criminality of money
laundering and its relevance to serious organized crime.
Prior to the amendments, the definition of money laundering
was limited only to property gained through crime. The new
amendments expand the definition to include negligence and
the use or transmission of property gained through an
offense, and its proceeds or property replacing such
property.
¶14. The amendments also bring under the law those who
assist in activities of concealment or laundering. With the
differentiation of money laundering from the traditional
receiving offense, the receiving offense penal scale now
corresponds to the basic penal scale of other economic
offenses, and the money laundering penal scale is set to
meet international standards, with sanctions of up to six
years of imprisonment.
¶15. Money laundering legislation does not list specific
crimes. Rather, it takes an "all serious crimes" approach.
Banks/financial institutions are required to maintain
records that could be used in a financial investigation for
five years. In practice (and according to accounting
regulations), these records are kept for at least seven
years.
¶16. There have been no new laws pertaining to money
laundering, terrorism or banking passed recently. In 2006,
Finland will begin implementing measures concerning the
third EU Money Laundering directive.
----------------
FINANCIAL SECTOR
----------------
¶17. There are 12 local banks in Finland, 320 local savings
and cooperative banks, 48 insurance companies, 27 mutual
fund companies, 29 remittance offices, 47 securities firms
(broker dealers, portfolio managers, etc), and 10 other
financial service companies, including mortgage brokerages
and credit card companies.
¶18. The financial sector is supervised by the Financial
Supervision Authority (except for money remittances), the
insurance sector by the Insurance Supervisory Authority, and
the gambling sector by the Ministry of Interior. The rest
of the parties under obligation to report are not
supervised, but there is some self-regulatory supervision in
place. Bearer shares are permitted in Finland. To use the
rights related to those shares, however, the bearer must
register with the shareholders' register.
¶19. The Act on Preventing and Clearing Money Laundering
protects individuals that cooperate with law enforcement
entities. Finland has not enacted secrecy laws that prevent
disclosure of client and ownership information by financial
services companies to bank supervisors and law enforcement
authorities.
¶20. According to the Money Collection Act, charities and non-
profit organizations require a license to raise money in
Finland. Money collection is supervised by the Ministry of
the Interior. The new act defines license conditions more
efficiently, allows for greater supervision of money
collection and permits the licensing authority to freeze an
account and impose fines. It requires license holders to
render accounts on money collection and the licensing
authority to inspect and approve the accounts.
¶21. Unless otherwise provided in the Lotteries Act, a
lottery may be run only with a license granted by the
licensing authority. The holder of a (non-money) lottery
license must render accounts for non-money lottery. The
Ministry of the Interior is responsible for supervision of
the running of lotteries and keeping statistical records on
lotteries.
-------------------------------
MONEY LAUNDERING CLEARING HOUSE
-------------------------------
¶22. The MLCH, established under the National Bureau of
Investigation in March 1998, operates as Finland's FIU, with
analytical duties and law enforcement authority (but without
any regulatory authority). It has direct access to the
databases of other government entities, including the
National Police, the Frontier Guard, the Ministry of
Justice, as well as tax and a number of other databases. It
does not have access to the databases of financial
institutions.
¶23. The MLCH receives and investigates suspicious
transaction reports (STRs) from covered reporting
institutions. In 2003 the responsibilities of the MLCH were
expanded to include the prevention of terrorist financing.
There is no threshold amount, below which a STR is not
required. In 2005, the MLCH received 3,661 STRs. Almost
all (3,495) concerned money laundering. The remaining 166
STRs consisted of entities suspected of terrorist financing,
designated by the United States, European Union, and/or
United Nations.
¶24. Between 1994-2005 the MLCH forwarded 1,719 reports on
suspicious transactions for pre-trial investigation. In
2005, 385 STRs resulted in criminal investigations, compared
to 552 in 2004. A majority of STRs involved at least one
foreign party. Nationals from 100 countries (in 2005) were
mentioned in the reports. To some extent, this
internationalization is due to the receipt of terrorist
financing related STRs. Of the money laundering STRs, the
most represented suspect nationalities were Finnish (47.4
percent), Russian (8.5 percent) and Estonian (6.5 percent).
¶25. Of all the reporting agencies, currency exchange
companies are the most active in reporting suspicious
transactions, accounting for a majority of all money
laundering STRs. Other active reporting entities include
banks, gambling establishments and non-police national
authorities such as Customs and the Frontier Guard. Reports
from the National Police account for approximately 0.1
percent of all STRs.
¶26. As a law enforcement branch, the MLCH has authority to
initiate investigations before the basis for a pre-trial
investigation has been established. Of the cases forwarded
to pre-trial criminal investigation, the most common
offenses were tax fraud (28 percent), narcotics offenses (25
percent) and pandering (19 percent).
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ASSET FREEZING
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¶27. Finnish authorities do not have national authority to
permanently suspend transactions or forfeit assets
independent of a judicial process. Although the authority
to freeze assets rests with the National Bureau of
Investigation, officials at the MLCH consult and coordinate
with other branches of government, including the Ministry of
Foreign Affairs, the Ministry of Interior, and the Ministry
of Finance.
¶28. The MLCH has the ability to freeze a transaction for up
to five business days in order to determine the legitimacy
of the funds. Funds can remain frozen for an extended
period when linked to a criminal investigation. According to
the Coercive Measures Act, all restraining and freezing
orders must be presented to the court every four months. A
new order can be given for a "reasonable time," but it is
yet unclear how long that time can ultimately be.
¶29. In 2005 the MLCH issued 11 orders to freeze
assets/suspend transactions. The total value of these
transactions was $3. 6 million. With these orders, the MLCH
recovered $670,800 of criminal proceeds. Most cases
involved money laundering and financial crime. In 1998-2005
the Clearing House gave a total of 89 decisions to suspend
of transactions with a total value of $18. 3 million,
including an estimated $11. 1 million in property assets.
¶30. According to the Penal Code, the proceeds of crime
shall be given to the injured party. If a claim for
compensation or restitution has not been filed, Finnish
authorities can order forfeiture. With some exceptions,
only the proceeds of a crime can be forfeited. Legitimate
businesses can be seized if used to launder drug money or
support terrorist activity. Finland has enacted laws for
the sharing of seized narcotics assets, as well as the
assets from other serious crimes, with other governments.
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TERRORIST FINANCING
-------------------
¶31. The Penal Code of Finland was amended at the end of
2002 with the addition of a new chapter on terrorism
(Chapter 34 a). According to Section 5 of the amendment, a
person who directly or indirectly provides or collects funds
in order to finance a terrorist act or who is aware that
these funds shall finance a terrorist act, commits a
punishable offense. Amendments to the Money Laundering Act
came into force in the spring of 2003, bringing it in line
with the Financial Action Task Force's (FATF) Special
Recommendations on Terrorist Financing, the UN International
Convention for the Suppression of the Financing of
Terrorism, and the amendments to the EU Directive on Money
Laundering. The amendments extend the system of money
laundering prevention to include suspected terrorist
financing.
¶32. Finland has national authority to freeze terrorist
assets. The MLCH performs investigations on all individuals
suspected of financing terrorist acts, including all
individuals and entities on the UNSCR 1267 Sanctions
Committee's consolidated list. To date, no Finns have been
found guilty or complicit of terrorist financing. In the
event that funds are found to be located in Finland, the
assets could be frozen without undue delay for five business
days. For the funds to remain frozen, a criminal
investigation must be launched (either in Finland or
abroad). The funds would remain frozen for the period of
the investigation.
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INTERNATIONAL AGREEMENTS
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¶33. Finland has concluded numerous bilateral law
enforcement cooperation agreements. Finland signed a tax
treaty with the United States in September 1989, replacing a
previous treaty signed in 1970. The current treaty has
provisions to exchange information for investigative
purposes. The MLCH may exchange information with other FIUs
and with bodies engaged in criminal investigations, such as
police services and public prosecutors. Although no
Memorandum of Understanding (MOU) is required for this
purpose under Finnish law, MOUs have been concluded with
Albania, Belgium, Bulgaria, Canada, France, Latvia,
Lithuania, Luxembourg, Poland, Russia, South Korea, Spain,
Switzerland and Thailand. The information exchanged may
only be used for the prevention and clearing of money
laundering transactions. Consequently, the information
obtained may only be used as evidence with the approval of
the MLCH.
¶34. Finland is party to the 1988 UN Drug Convention; the UN
Convention against Transnational Organized Crime; the UN
International Convention for the Suppression of the
Financing of Terrorism; the Council of Europe Convention on
Laundering, Search, Seizure and Confiscation of the Proceeds
from Crime; and the European Convention on Mutual Assistance
in Criminal Matters. Finland has signed, but not yet
ratified, the UN Convention against Corruption.
¶35. Finland is a member of the FATF and the Council of
Europe. The MLCH is a member of the Egmont Group. Finland
also co-operates with the EU, Europol, the UN, Interpol, the
Baltic Sea Task Force, the Organization for Economic Co-
operation and Development, and other international agencies
designed to combat organized crime.
HYATT#