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Like Sam Loves Free Fried Chicken, Law Enforcement Loves “Free” Suspicious Activity Reports … But What If Law Enforcement Had to Earn the Right to Use the Private Sector’s “Free” SARs?

“Well, I’m here in the freezing cold getting’ free chicken sandwiches. Because the food tastes great. I mean, it’s chicken. Fried chicken. I like fried chicken.”

Eleven year-old Sam Caruana of Buffalo, New York waited outside a Chick-fil-A restaurant in the freezing cold in order to be one of the 100 people given free fried chicken for one year (actually, one chicken sandwich a week for fifty-two weeks). In a video that went viral (Sam Caruana YouTube – Free Chicken), young Sam explained that he simply loved fried chicken, and he’d stand in the cold for free fried chicken.

Just as Sam loves free fried chicken, law enforcement loves free Suspicious Activity Reports, or SARs. In the United States, over 30,000 private sector financial institutions – from banks to credit unions, to money transmitters and check cashers, to casinos and insurance companies, to broker dealers and investment advisers – file more than 2,000,000 SARs every year. And it costs those financial institutions billions of dollars to have the programs, policies, procedures, processes, technology, and people to onboard and risk-rate customers, to monitor for and identify unusual activity, to investigate that unusual activity to determine if it is suspicious, and, if it is, to file a SAR with the Treasury Department’s Financial Crimes Enforcement Network, or FinCEN. From there, hundreds of law enforcement agencies across the country, at every level of government, can access those SARs and use them in their investigations into possible tax, criminal, or other investigations or proceedings. To law enforcement, those SARs are, essentially, free. And like Sam loves free fried chicken, law enforcement loves free SARs. Who wouldn’t?

But should those private sector SARs, that cost billions of dollars to produce, be “free” to public sector law enforcement agencies? Put another way, should the public sector law enforcement agency consumers of SARs need to provide something in return to the private sector producers of SARs?

I say they should. And here’s what I propose: that in return for the privilege of accessing and using private sector SARs, law enforcement shouldn’t have to pay for that privilege with money, but with effort. The public sector consumers of SARs should let the private sector producers know which of those SARs provide tactical or strategic value.

A recent Mid-Size Bank Coalition of America (MBCA) survey found the average MBCA bank had: 9,648,000 transactions/month being monitored, resulting in 3,908 alerts/month (0.04% of transactions alerted), resulting in 348 cases being opened (8.9% of alerts became a case), resulting in 108 SARs being filed (31% of cases or 2.8% of alerts). Note that the survey didn’t ask whether any of those SARs were of interest or useful to law enforcement. Some of the mega banks indicate that law enforcement shows interest in (through requests for supporting documentation or grand jury subpoenas) 6% – 8% of SARs.

I argue that the Alert/SAR and even Case/SAR ratios are all of interest, but tracking to SARs filed is a little bit like a car manufacturer tracking how many cars it builds but not how many cars it sells, or how well those cars perform, how long they last, and how popular they are. And just like the automobile industry measuring how many cars are purchased, the better measure for AML programs is “SARs purchased”, or SARs that provide value to law enforcement.

Also, there is much being written about how machine learning and artificial intelligence will transform anti-money laundering programs. Indeed, ML and AI proponents are convinced – and spend a lot of time trying to convince others – that they will disrupt and revolutionize the current “broken” AML regime. Among other targets within this broken regime is AML alert generation and disposition and reducing the false positive rate. The result, if we believe the ML/AI community, is a massive reduction in the number of AML analysts that are churning through the hundreds and thousands of alerts, looking for the very few that are “true positives” worthy of being labelled “suspicious” and reported to the government. But the fundamental problem that every one of those ML/AI systems has is that they are using the wrong data to train their algorithms and “teach” their machines: they are looking at the SARs that are filed, not the SARs that have tactical or strategic value to law enforcement.

Tactical or Strategic Value Suspicious Activity Reports – TSV SARs

The best measure of an effective and efficient financial crimes program is how well it is providing timely, effective intelligence to law enforcement. And the best measure of that is whether the SARs that are being filed are providing tactical or strategic value to law enforcement. How do you determine whether a SAR provides value to law enforcement? One way would be to ask law enforcement, and hope you get an answer. That could prove to be difficult.  Can you somehow measure law enforcement interest in a SAR?  Many banks do that by tracking grand jury subpoenas received to prior SAR suspects, law enforcement requests for supporting documentation, and other formal and informal requests for SARs and SAR-related information. As I write above, an Alert-to-SAR rate may not be a good measure of whether an alert is, in fact, “positive”. What may be relevant is an Alert-to-TSV SAR rate.

A TSV SAR is one that has either tactical value – it was used in a particular case – or strategic value – it contributed to understanding a typology or trend. And some SARs can have both tactical and strategic value. That value is determined by law enforcement indicating, within seven years of the filing of the SAR (more on that later), that the SAR provided tactical (it led to or supported a particular case) or strategic (it contributed to or confirmed a typology) value.  That law enforcement response or feedback is provided to FinCEN through the same BSA Database interfaces that exist today – obviously, some coding and training will need to be done (for how FinCEN does it, see below). If the filing financial institution does not receive a TSV SAR response or feedback from law enforcement or FinCEN within seven years of filing a SAR, it can conclude that the SAR had no tactical or strategic value to law enforcement or FinCEN, and may factor that into decisions whether to change or maintain the underlying alerting methodology. Over time, the financial institution could eliminate those alerts that were not providing timely, actionable intelligence to law enforcement. And when FinCEN shares that information across the industry, others could also reduce their false positive rates.

FinCEN’s TSV SAR Feedback Loop

FinCEN is working to provide more feedback to the private sector producers of BSA reports. As FinCEN Director Ken Blanco recently stated:[1]

“Earlier this year, FinCEN began the BSA Value Project, a study and analysis of the value of the BSA information we receive. We are working to provide comprehensive and quantitative understanding of the broad value of BSA reporting and other BSA information in order to make it more effective and its collection more efficient. We already know that BSA data plays a critical role in keeping our country strong, our financial system secure, and our families safe from harm — that is clear. But FinCEN is using the BSA Value Project to improve how we communicate the way BSA information is valued and used, and to develop metrics to track and measure the value of its use on an ongoing basis.”

FinCEN receives every SAR. Indeed, FinCEN receives a number of different BSA-related reporting: SARs, CTRs, CMIRs, and Form 8300s. It’s a daunting amount of information. As FinCEN Director Ken Blanco noted in the same speech:

FinCEN’s BSA database includes nearly 300 million records — 55,000 new documents are added each day. The reporting contributes critical information that is routinely analyzed, resulting in the identification of suspected criminal and terrorist activity and the initiation of investigations.

“FinCEN grants more than 12,000 agents, analysts, and investigative personnel from over 350 unique federal, state, and local agencies across the United States with direct access to this critical reporting by financial institutions. There are approximately 30,000 searches of the BSA data taking place each day. Further, there are more than 100 Suspicious Activity Report (SAR) review teams and financial crimes task forces across the country, which bring together prosecutors and investigators from different agencies to review BSA reports. Collectively, these teams reviewed approximately 60% of all SARs filed.

Each day, law enforcement, FinCEN, regulators, and others are querying this data:  7.4 million queries per year on average. Those queries identify an average of 18.2 million filings that are responsive or useful to ongoing investigations, examinations, victim identification, analysis and network development, sanctions development, and U.S. national security activities, among many, many other uses that protect our nation from harm, help deter crime, and save lives.”

This doesn’t tell us how many of those 55,000 daily reports are SARs, but we do know that in 2018 there were 2,171,173 SARs filed, or about 8,700 every (business) day. And it appears that FinCEN knows which law enforcement agencies access which SARs, and when. And we now know that there are “18.2 million filings that are responsive or useful to ongoing investigations, examinations, victim identification, analysis and network development, sanctions development, and U.S. national security activities” every year. But which filings?

The law enforcement agencies know which SARs provide tactical or strategic value, or both. So if law enforcement finds value in a SAR, it should acknowledge that, and provide that information back to FinCEN. FinCEN, in turn, could provide an annual report to every financial institution that filed, say, more than 250 SARs a year (that’s one every business day, and is more than three times the number filed by the average bank or credit union). That report would be a simple relational database indicating which SARs had either or both tactical or strategic value. SAR filers would then be able to use that information to actually train or tune their monitoring and surveillance systems, and even eliminate those alerting systems that weren’t providing any value to law enforcement.

Why give law enforcement seven years to respond? Criminal cases take years to develop. And sometimes a case may not even be opened for years, and a SAR filing may trigger an investigation. And sometimes a case is developed and the law enforcement agency searches the SAR database and finds SARs that were filed five, six, seven or more years earlier. Between record retention rules and practical value, seven years seems reasonable.

Law enforcement agencies have tremendous responsibilities and obligations, and their resources and budgets are stretched to the breaking point. Adding another obligation – to provide feedback to the banks, credit unions, and other private sector institutions that provide them with reports of suspicious activity – may not be feasible. But the upside of that feedback – that law enforcement may get fewer, but better, reports, and the private sector institutions can focus more on human trafficking, human smuggling, and terrorist financing and less on identifying and reporting activity that isn’t of interest to law enforcement – may far exceed the downside.

Free Suspicious Activity Reports are great. But like Sam being prepared to stand in the freezing cold for his fried chicken, perhaps law enforcement is prepared to let us know whether the reports we’re filing have value.

For more on alert-to-SAR rates, the TSV feedback loop, machine learning and artificial intelligence, see other articles I’ve written:

The TSV SAR Feedback Loop – June 4 2019

AML and Machine Learning – December 14 2018

Rules Based Monitoring – December 20 2018

FinCEN FY2020 Report – June 4 2019

FinCEN BSA Value Project – August 19 2019

BSA Regime – A Classic Fixer-Upper – October 29 2019

[1] November 15, 2019, prepared remarks for the Chainalysis Blockchain Symposium, available at https://www.fincen.gov/news/speeches/prepared-remarks-fincen-director-kenneth-blanco-chainalysis-blockchain-symposium

A Bank’s Bid for Innovative AML Solutions: Innovation Remains A Perilous Endeavor

One Bank Asked the OCC to Have an “Agile Approach to Supervisory Oversight”

On September 27, 2019 the OCC published an Interpretive Letter answering an unknown bank’s request to make some innovative changes to how it files cash structuring SARs. Tacked onto its three technical questions was a request by the bank to do this innovation along with the OCC itself through something the bank called an “agile approach to supervisory oversight.” After qualified “yes” answers to the three technical questions, the OCC’s Senior Deputy Comptroller and Chief Counsel indicated that the OCC was open to “an agile and transparent supervisory approach while the Bank is building this automated solution” but he didn’t actually write that the OCC would, in fact, adopt an agile approach. This decision provides some insight, and perhaps the first public test, of (i) the regulators’ December 2018 statement on using innovative efforts to fight money laundering, and (ii) the OCC’s April 2019 proposal around innovation pilot programs. Whether the OCC passed the test is open to discussion: what appears settled, though, is that AML innovation in the regulated financial sector remains a perilous endeavor.

Regulators’ December 2018 Joint Statement on Innovative AML Efforts

On December 3, 2018 the five main US Bank Secrecy Act (BSA) regulators issued a joint statement titled “Innovative Efforts to Combat Money Laundering and Terrorist Financing”.[1] The intent of the statement was to encourage banks to use modern-era technologies to bolster their BSA/AML compliance programs. The agencies asked banks “to consider, evaluate, and, where appropriate, responsibly implement innovative approaches to meet their Bank Secrecy Act/anti-money laundering (BSA/AML) compliance obligations, in order to further strengthen the financial system against illicit financial activity” and “[t]he Agencies recognize[d] that private sector innovation, including new ways of using existing tools or adopting new technologies, can help banks” to do so.

The statement was a very positive step to encourage private sector innovation in fighting financial crime by testing new ways of using existing tools as well as adopting new technologies.

But it wasn’t the “green light to innovate” that some people have said it is. There was some language in the statement that made it, at best, a cautionary yellow light. And the September 27th OCC letter seems to clarify that banks can innovate, but the usual regulatory oversight and potential sanctions still apply.

The Agencies’ December 2018 statement included five things that bear repeating:

  1. “The Agencies recognize that private sector innovation, including new ways of using existing tools or adopting new technologies, can help banks identify and report money laundering, terrorist financing, and other illicit financial activity by enhancing the effectiveness and efficiency of banks’ BSA/AML compliance programs. To assist banks in this effort, the Agencies are committed to continued engagement with the private sector and other interested parties.”
  2. “The Agencies will not penalize or criticize banks that maintain effective BSA/AML compliance programs commensurate with their risk profiles but choose not to pursue innovative approaches.”
  3. “While banks are expected to maintain effective BSA/AML compliance programs, the Agencies will not advocate a particular method or technology for banks to comply with BSA/AML requirements.”
  4. Where test or implemented “artificial intelligence-based transaction monitoring systems … identify suspicious activity that would not otherwise have been identified under existing processes, the Agencies will assess the adequacy of banks’ existing suspicious activity monitoring processes independent of the results of the pilot program”
  5. “… the implementation of innovative approaches in banks’ BSA/AML compliance programs will not result in additional regulatory expectations.”

Note the strong, unqualified language: “the Agencies are committed to continued engagement”, “the Agencies will not penalize or criticize”, “the Agencies will not advocate …”, “the Agencies will assess”, and “the implementation of innovative approaches will not result in additional regulatory expectations”.

The qualified “assurances” come in the paragraph about pilot programs (with emphasis added):

“Pilot programs undertaken by banks, in conjunction with existing BSA/AML processes, are an important means of testing and validating the effectiveness of innovative approaches.  While the Agencies may provide feedback, pilot programs in and of themselves should not subject banks to supervisory criticism even if the pilot programs ultimately prove unsuccessful.  Likewise, pilot programs that expose gaps in a BSA/AML compliance program will not necessarily result in supervisory action with respect to that program.  For example, when banks test or implement artificial intelligence-based transaction monitoring systems and identify suspicious activity that would not otherwise have been identified under existing processes, the Agencies will not automatically assume that the banks’ existing processes are deficient.  In these instances, the Agencies will assess the adequacy of banks’ existing suspicious activity monitoring processes independent of the results of the pilot program.  Further, the implementation of innovative approaches in banks’ BSA/AML compliance programs will not result in additional regulatory expectations.”

Here there are the qualified assurances (a qualified assurance is not an assurance, by the way): “should not” is different than “will not”; “will not necessarily” is very different than “will not”; and “not automatically assume” isn’t the same as “not assume”.  These are important distinctions. The agencies could have written something very different:

“… pilot programs in and of themselves will not subject banks to supervisory criticism even if the pilot programs ultimately prove unsuccessful.  Likewise, pilot programs that expose gaps in a BSA/AML compliance program will not result in supervisory action with respect to that program.  For example, when banks test or implement artificial intelligence-based transaction monitoring systems and identify suspicious activity that would not otherwise have been identified under existing processes, the Agencies will not assume that the banks’ existing processes are deficient …”

The OCC’s April 2019 Innovation Pilot Program

On April 30, 2019 the OCC sought public comment on its proposed Innovation Pilot Program, a voluntary program designed to provide fintech providers and financial institutions “with regulatory input early in the testing of innovative activities that could present significant opportunities or benefits to consumers, businesses, financial institutions, and communities.” See OCC Innovation Pilot Program. As the OCC has written, the Innovation Pilot Program clearly notes that the agency would not provide “statutory or regulatory waivers and does not absolve entities participating in the program from complying with applicable laws and regulations.”

Twenty comments were posted to the OCC’s website. A number of them included comments that innovators needed some formalized regulatory forbearance in order to be able encourage them to innovate. The Bank Policy Institute’s letter (BPI Comment), submitted by Greg Baer (a long-standing and articulate proponent of reasonable and responsible regulation), provided that:

“… the OCC should clarify publicly that a bank is not required to seek the review and approval of its examination team prior to developing or implementing a new product, process, or service; that unsuccessful pilots will not warrant an MRA or other sanction unless they constitute and unsafe and unsound practice or a violation of law; and that innovations undertaken without seeking prior OCC approval will not be subject to stricter scrutiny or a ‘strict liability’ regime. We also recommend that the OCC revisit and clarify all existing guidance on innovation to reduce the current uncertainty regarding the development of products, processes and services; outdated or unnecessary supervisory expectations should be rescinded.”

The American Bankers Association comment ABA Comment also asks for similar guidance:

“For institutions to participate confidently in a pilot, there must be internal agreement that OCC supervision and enforcement will not pursue punitive actions. In other words, the program should produce decisions that have the full support of the OCC and bind the agency to those conclusions going forward … One way for the OCC to accomplish this is to clarify that a participating bank will not be assigned Matters Requiring Attention (MRAs) if it acts in good faith as part of a Pilot Program. The nature of technological innovation means that banks must try new things, experiment, and sometimes make mistakes. The Pilot Program has been designed as a short-term limited-scale test to ensure that any mistakes made are unlikely to have an impact on the safety and soundness of an institution. Clarifying that MRAs will not be issued for mistakes made in good faith may help give banks the certainty they need to participate in a Pilot Program.”

And the Securities Industry and Financial Markets Association (SIFMA) comment letter SIFMA Comment Letter included the following:

“Relief from strict regulatory compliance is a vital prerequisite to draw firms into the test environment, precisely so that those areas of noncompliance may be identified and remediated and avoid harm to the consumers. Without offering this regulatory relief, the regulatory uncertainty associated with participating in the Pilot Program could, by itself, deter banks from participating. Similarly, the lack of meaningful regulatory relief could limit the opportunity the program provides for firms to experiment and innovate.”

So where did that leave banks that were thinking of innovative approaches to AML?  For those that choose not to pursue innovative pilot programs, it is clear that they will not be penalized or criticized, but for those that try innovative pilot programs that ultimately expose gaps in their BSA/AML compliance program, the agencies will not automatically assume that the banks’ existing processes are deficient. In response to this choice – do not innovate and not be penalized, or innovate and risk being penalized – many banks have chosen the former. As a result, advocates for those banks – the BPI and ABA, for example – have asked the OCC to clarify that it will not pursue punitive actions against banks that unsuccessfully innovate.

How has the OCC replied? It hasn’t yet finalized its Innovation Program, but it has responded to a bank’s request for guidance on some innovative approaches to monitoring for, alerting on, and filing suspicious activity reports on activity and customers that are structuring cash transactions.

A Bank’s Request to Have the OCC Help It Innovate

The OCC published an Interpretive Letter on September 27, 2019 that sheds some light on how it looks at its commitments under the December 2018 innovation statement.[2]  According to the Interpretive Letter, on February 22, 2019 an OCC-regulated bank submitted a request to streamline SARs for potential structuring activity (the Bank also sought the same or a similar ruling from FinCEN: as of this writing, FinCEN has not published a ruling). The bank asked three questions (and the OCC responded):

  1. Whether the Bank could file a structuring SAR based solely on an alert, without performing a manual investigation, and if so, under what circumstances (yes, but with some significant limitations);
  2. Whether the proposed automated generation of SAR narratives for structuring SARs was consistent with the OCC’s SAR regulations (yes, but with some significant limitations);
  3. Whether the proposed automation of SAR filings was consistent with the OCC’s BSA program regulations (yes, but with some significant limitations).

The most interesting request by the Bank, though, was its request that the OCC take an “agile approach to supervisory oversight” for the bank’s “regulatory sandbox” initiative. Pages 6 and 7 of the OCC letter provide the particulars of this request. There, the OCC writes:

“Your letter also requested regulatory relief to conduct this initiative within a “regulatory sandbox.” Your regulatory sandbox request states ‘This relief would be in the form of an agile approach to supervisory oversight, which would include the OCC’s full access, evaluation, and participation in the initiative development, but would not include regulatory outcomes such as matters requiring attention, violations of law or financial penalties. [The Bank] welcomes the OCC to consider ways to participate in reviewing the initiative outcomes outside of its standard examination processes to ensure effectiveness and provide feedback about the initiative development.’”

NOTE: I had to read the key sentence a few times to settle on its intent and meaning. That sentence is “This relief would be in the form of an agile approach to supervisory oversight, which would include the OCC’s full access, evaluation, and participation in the initiative development, but would not include regulatory outcomes such as matters requiring attention, violations of law or financial penalties.”

Was the bank saying the relief sought was an agile approach to supervisory oversight that included the OCC’s full participation in the process and no adverse regulatory outcomes? Or was the bank saying the relief sought was an agile approach to supervisory oversight that included the OCC’s full participation in the process, but did not include anything to do with adverse regulatory outcomes?

I settled on the latter meaning: that the bank was seeking the OCC’s full participation, but did not expect any regulatory forbearance.

The OCC first reiterated its position from the December 2018 joint statement by writing that it “supports responsible innovation in the national banking system that enhances the safety and soundness of the federal banking system, including responsibly implemented innovative approaches to meeting the compliance obligations under the Bank Secrecy Act.” It then wrote that it “is also open to an agile and transparent supervisory approach while the Bank is building this automated solution for filing Structuring SARs and conducting user acceptance testing.” This language is a bit different than what the OCC wrote at the top of page 2 of the letter: “the OCC is open to engaging in regular discussions between the Bank and appropriate OCC personnel, including providing proactive and
timely feedback relating to this automation proposal.”

Notably, the OCC wrote that it is “open to an agile and transparent supervisory approach”, and “open to engaging in regular discussions between the Bank and appropriate OCC personnel”, but being open to something doesn’t mean you approve of it or agree to it. In fact, the OCC didn’t appear to grant the bank’s request. In the penultimate sentence the OCC wrote: “The OCC will monitor any such changes through its ordinary supervisory processes.”

How About Forbearance to Innovate Without Fear of Regulatory Sanctions?

As set out above, in June 2019 the BPI and ABA (and eighteen others) commented on the OCC’s proposal for an innovation pilot program. The BPI commented that “the OCC should clarify publicly that … unsuccessful pilots will not warrant an MRA or other sanction unless they constitute and unsafe and unsound practice or a violation of law”, and the ABA commented that the OCC should “clarify that a participating bank will not be assigned Matters Requiring Attention (MRAs) if it acts in good faith as part of a Pilot Program”.

The OCC seems to have obliquely responded to both of those comments. In its September 2019 Interpretative Letter, the OCC took the time to write that it “will not approve a regulatory sandbox that includes forbearance on regulatory issues for the Bank’s initiative for the automation of Structuring SAR filings.” Note that the OCC made this statement even though the bank appears to have specifically indicated that the requested relief did not include forbearance from “regulatory outcomes such as matters requiring attention, violations of law or financial penalties”. And the OCC letter includes a reference to both the Interagency statement on responsible innovation and the OCC’s April 2019 Innovation Pilot Program (see footnote 25 on page 7): “banks must continue to meet their BSA/AML compliance obligations, as well as ensure the ongoing safety and soundness of the bank, when developing pilot programs and other innovative approaches.”

So although the OCC hasn’t formally responded to the comments to its June 2019 innovation program to allow banks to innovate without fear of regulatory sanction if that innovation doesn’t go well, it has made it clearer that a bank still has the choice to not innovate and not be penalized, or to innovate and risk being penalized.

(In fairness, in its Spring 2019 Semiannual Risk Perspective Report, the OCC noted that a bank’s inability to innovate is “a source of significant strategic risk.” See OCC Semiannual Risk Perspective, 2019-49 (May 20, 2019)).

Timely Feedback – Is Seven Months Timely?

As set out above, the OCC wrote that it “is open to engaging in regular discussions between the Bank and appropriate OCC personnel, including providing proactive and timely feedback …”.  The bank’s request was submitted on February 22, 2019. The OCC’s feedback was sent on September 27, 2019. So it took the OCC seven months to respond to the bank’s request for an interpretive letter. In this age of high-speed fintech disruption, seven months should not be considered “timely.” What would be timely? I would aim for 90 days.

Conclusion

This unnamed OCC-regulated bank appears to have a flashing green or cautionary yellow light from the OCC to deploy some technology and process enhancements to streamline a small percentage if its SAR monitoring, alerting, and filing.  The OCC will remain vigilant, however, warning the bank that it “must ensure that it has developed and deployed appropriate risk governance to enable the bank to identify, measure, monitor, and control for the risks associated with the automated process. The bank also has a continuing obligation to employ appropriate oversight of the automated process.”

So the message to the 1,700 or so OCC banks appears to be this: there’s no peril in not innovating, but if you decide to innovate, do so at your peril.

[1] The Board of Governors of the Federal Reserve System, the Federal Deposit Insurance Corporation (FDIC), the Financial Crimes Enforcement Network (FinCEN), the National Credit Union Administration, and the Office of the Comptroller of the Currency. The statement is available at https://www.occ.gov/news-issuances/news-releases/2018/nr-occ-2018-130a.pdf

[2] https://www.occ.gov/topics/charters-and-licensing/interpretations-and-actions/2019/int1166.pdf

The Current BSA/AML Regime is a Classic Fixer-Upper … and Here’s Seven Things to Fix

A 1970 Holden “Belmont” … built the same year as the first BSA-related Act was passed in the United States: the Currency and Foreign Transactions Reporting Act, PL 91-508

There is a lot of media attention around the need for a new way to tackle financial crimes risk management. Apparently the current regime is “broken” (I disagree) or in desperate need of repair (what government-run programs are not in some sort of state of disrepair?), or, at the very least, not particularly effective nor efficient. And there are a lot of suggestions from the private and public sectors on how to make the regime more effective and more efficient.  I’ll offer seven things to consider as we all work towards renovating our BSA/AML regime, to take it from its tired, dated (the last legislative change to the three statutes we call the Bank Secrecy Act was made in 2004) state to something that provides a more balanced, effective, and efficient regime.

I. Transaction Monitoring Systems

Apparently, current customer- and account-based transaction monitoring systems are highly inefficient, because for every 100 alerts they produce, five or fewer actually end up being reported to the government in a Suspicious Activity Report. The transaction monitoring software is often blamed (although bad data is the more likely culprit), and machine learning and artificial intelligence are often touted (by providers of machine learning and artificial intelligence) as the solutions. Consider the following when it comes to transaction monitoring and false positives:

  1. If a 95% false positive rate is bad … what is good? Human-generated referrals will result in SARs about 50% of the time: that might be a good standard.
  2. We have to stop tuning our transaction monitoring systems against SARs filed with law enforcement, and start tuning them against SARs used by law enforcement. I’ve written about this on many occasions, and have offered up something called the “TSV” SAR – a SAR that law enforcement indicates has Tactical or Strategic Value.
  3. High false positives rates may not be caused by bad data or poor technology at all, but by regulatory expectations – real or imagined – that financial institutions can’t afford the audit, regulatory, legal, and reputational costs of failing to identify (alert on) something unusual or anomalous that could eventually be found to have been suspicious.

(I’ve written about this on a few occasions: see, for example, RegTech Consulting Article).

It may be that transaction monitoring itself is the culprit (and not bad data, outmoded technology, or unreasonable regulatory expectations). My experience is that customer- and account-based transaction monitoring is not nearly as effective as relationship-based interaction surveillance. Let’s parse this out:

  • Customer versus relationship – focusing on a single customer is less efficient than looking at the entire relationship that customer is or could be part of. Bank’s marketing departments think in terms of households as the key relationship: credit department’s think in terms of parent and subsidiary entities and guarantors as the needed relationship in determining credit worthiness. Financial crimes departments need to also think in the same terms. It is simply more encompassing and more efficient.
  • Transaction versus interaction – customers may interact with a bank many times, through a phone call, an online session, a balance inquiry, or a mobile look-up, before they will perform an actual transaction or movement of value. Ignoring those interactions, and only focusing on transactions, doesn’t provide the full picture of that customer’s relationship with the bank.
  • Monitoring versus surveillance – monitoring is not contextual: it is simply looking at specific transaction types, in certain amounts or ranges, performed by certain customers or customer classes. Surveillance, on the other hand, is contextual: it looks at the context of certain activity compared against all activity of that customer over time, and/or of certain activity of that customer compared to other customers within its class (Whatever that class may be).

So the public sector needs to encourage the private sector to shift from a customer-based transaction monitoring regime to a relationship-based interaction surveillance regime.

II. Information Sharing

Crime and criminal organizations don’t operate in a single financial institution or even in a single jurisdiction. Yet our BSA/AML regime still encourages single entity SAR filers and doesn’t promote cross-jurisdictional information sharing.  The tools are available to better share information across a financial institution, and between financial institutions. Laws, regulations, and regulatory guidance all need to change to specifically and easily allow a single financial institution operating in multiple jurisdictions to (safely) share more information with itself, to allow multiple institutions in a single and multiple jurisdictions to (safely) share more information between them, and to allow those institutions to jointly investigate and report together. Greater encouragement and use of Section 314(b) associations and joint SAR filings are critical.

III. Classical Music, or Jazz?

Auditors, regulators, and even a lot of FinTech companies, would prefer that AML continue to be like classical music, where every note (risk assessments and policies) is carefully written, the music is perfectly orchestrated (transaction monitoring models are static and documented), and the resulting music (SAR filings) sounds the same time and time again regardless of who plays it. This allows the auditors and regulators to have perfectly-written test scripts to audit and examine the programs, and allows the FinTech companies to produce a “solution” to a defined problem. This approach may work for fraud, where an objective event (a theft or compromise) produces a defined result (a monetary loss). But from a financial institution’s perspective, AML is neither an objective event nor a defined result, but is a subjective feeling that it is more likely than not that something anomalous or different has occurred and needs to be reported. So AML is less like classical music and more like jazz: defining, designing, tuning, and running effective anti-money laundering interaction monitoring and customer surveillance systems is like writing jazz music … the composer/arranger (FinTech) provides the artist (analyst) a foundation to freely improvise (investigate) within established and consistent frameworks, and no two investigations are ever the same, and similar facts can be interpreted a different way by different people … and a SAR may or may not be filed. AML drives auditors and examiners mad, and vexes all but a few FinTechs. So be it. Let’s acknowledge it, and encourage it.

IV. Before Creating New Tools, Let’s Use the Ones We Have

The federal government has lots of AML tools in its arsenal: it simply needs to use them in more courageous and imaginative ways. Tools such as section 311 Special Measures and 314 Information Sharing are grossly under-utilized. Information sharing is discussed above: section 311 Special Measures are reserved for the most egregious bad actors in the system, and are rarely invoked. But the reality is that financial institutions will kick out a customer or not (knowingly) provide services to entire classes of customers or in certain jurisdictions for fear of not being able to economically manage the perceived risk/reward equation of that customer or class of customer or jurisdiction. But that customer or class or jurisdiction simply goes to another financial institution in the regulated sector, or to an institution in an un- or under-regulated sector (the notion of “de-risking”). The entire financial system would be better off if, instead of de-risking a suspected bad customer or class of customer or jurisdiction, financial institutions were not encouraged to exit at all, but encouraged to keep that customer or class, and monitor for and report any suspicious activity. Then, if the government determined that the customer or class of customers was too systemically risky to be banked at all, it could use section 314 to effectively blacklist that customer or class of customers. Imposing “special measures” shouldn’t be a responsibility of private sector financial institutions guessing at whether a customer or class of customers is a bad actor: it is and should be the responsibility of the federal government using the tool it currently has available to it: Section 311.

V. … and Let’s Restore The Tool We Started With

The reporting of large cash transactions was the first AML tool the US government came up with (in 1970 as part of the Currency & Foreign Transactions Reporting Act).  Those reports, called Currency Transaction Reports, or CTRs, started out as single cash transactions on behalf of an accountholder, for more than $10,000.  They have since morphed to one or more cash transactions aggregating to more than $10,000 in a 24-hour period, by or on behalf of one or more beneficiaries.  There will be more than 18 million CTRs filed this year, and apparently law enforcement finds them an effective tool. But there is nothing more inefficient: simply put, CTRs are now the biggest resource drain in BSA/AML. Because of regulatory drift, CTRs are de facto SAR-lites … we need to get back to basic CTRs and redeploy the resources used to wrestle with the ever-expanding aggregation and “by or on behalf of” requirements, and deploy them against potential suspicious activity. And forget about increasing the threshold amount from the current “more than $10,000” standard: $10,000 is almost 5,000 times the amount of the average cash transaction in the United States today (which is $22, according to multiple reports from the Federal Reserve), and no one can argue that having a requirement to report a transaction or transactions that are 5,000 times the average is unreasonable. And it isn’t the amount that causes inefficiencies, it is the requirements to (i) aggregate multiple transactions totaling more than $10,000 in a 24-hour period, (ii) to identify and aggregate transactions “by or on behalf of” multiple parties and accountholders, and (iii) exempt, on a bank-by-bank basis, certain entities that can be exempted (but rarely are) from the CTR filing regime. If anything, we could save and redploy resources if the CTR threshold was the same as the SAR threshold – $5,000.

VI. The Clash of the Titles

And remember the “Clash of the Titles” … the protect-the-financial-system (filing great SARs) requirements of Title 31 (Money & Finance … the BSA) are trumped by the safety and soundness (program hygiene) requirements of Title 12 (Banks & Banking), and financial institutions act defensively because of the punitive measures in Title 18 (Crimes & Criminal Procedure) and Title 50 (War … OFAC’s statutes and regulations). There is a need to harmonize the Four Titles – or at least Titles 12 and 31 – and how financial institutions are examined against them. BSA/AML people are judged on whether they avoid bad TARP results (from being Tested, Audited, Regulated, and Prosecuted) rather than  on whether they provide actionable, timely intelligence to law enforcement. Today, most BSA Officers live in fear of not being able to balance all their commitments under the four titles: the great Hugh MacLeod was probably thinking of BSA Officers when he wrote: “I do the work for free. I get paid to be afraid …”

VII. A Central Registry for Beneficial Ownership Information

At the root of almost all large money laundering cases are legal entities with opaque ownership, or shell companies, where kleptocrats, fraudsters, tax evaders, and other miscreants can hide, move, and use their assets with near impunity.  Greater corporate transparency has long been seen as one of the keys to fighting financial crime (the FATF’s Recommendation 24 on corporate transparency was first published in 1993), and accessible central registries of beneficial ownership information have been proven to be the key to that greater transparency. Yet the United States is one of the few major financial centers that does not have a centralized registry of beneficial ownership information. I’ve written that without such a centralized registry, the current beneficial ownership requirements are ineffective.  See Beneficial Ownership Registry Article. Two bills currently before Congress – the Senate’s ILLICIT Cash Act (S2563) and the House’s Corporate Transparency Act (HR2513) both contemplate a centralized registry of beneficial ownership maintained by FinCEN. But both of those bills – and FATF recommendations and guidance on the same issue – fall short in that they only allow law enforcement (or “competent authorities” using the FATF term) to freely access that database. The bills before Congress allow financial institutions to access the database but only with the consent of the customer they’re asking about and only for the purposes of performing due diligence on that customer. I have proposed that those bills be changed to also allow financial institutions to query the database without the consent of the entity they’re asking about for the purposes of satisfying their suspicious activity reporting requirements.

Conclusion – Seven Fixer-Upper Projects for the BSA/AML Regime

  1. Shift from customer-centric transaction monitoring systems to relationship-based interaction surveillance systems
  2. Encourage cross-institutional and cross-jurisdictional information sharing
  3. Encourage the private sector to be more creative and innovative in its approach to AML – AML is like jazz music, not classical music
  4. Address de-risking through aggressive use of Section 311 Special Measures
  5. Simplify the CTR regime. Please. And forget about increasing the $10,000 threshold – in fact, reduce it to $5,000
  6. As long as financial institutions are judged on US Code Titles 12, 18, 31, and 50, expect them to be both ineffective and inefficient. Can Titles 12 and 31 try to get along?
  7. A central registry of beneficial ownership information that is freely accessible to financial institutions is a must have

FinCEN’s BSA Value Project – An Effort to Provide Actionable Information for SAR Filers

Two Million SARs are Filed Every Year … But Which Ones Provide Tactical or Strategic Value to Law Enforcement?

Included in the Director’s remarks was some interesting information on an eight-month old “BSA Value Project” that may have been started because, as Director Blanco remarked, FinCEN has “heard during our discussions that there continues to be a desire for more feedback on what FinCEN is seeing in the BSA data in terms of trends [and] we need to do better SAR analysis for wider trends and typologies …”. Director Blanco noted that “We want to provide more feedback, and we will.”

There has not been much public mention of the BSA Value Project: a quick Google search shows that FinCEN’s Associate Director Andrea Sharrin introduced the BSA Value Project at a Florida International Bankers Association (FIBA) conference on March 12, 2019, and then Director Blanco described it in his August 13th remarks:

In January 2019, FinCEN began an ambitious project to catalogue the value of BSA reporting across the entire value chain of its creation and use. The project will result in a comprehensive and quantitative understanding of the broad value of BSA reporting and other BSA information to all types of consumers of that information.

We already know that BSA data plays a critical role in keeping our country strong, our financial system secure, and our families safe from harm. But FinCEN is using the BSA Value Project to improve how we communicate the way BSA information is valued and used, and to develop metrics to track and measure the value of its use on an ongoing basis. The project has included hundreds of interviews with stakeholder groups, including casinos.

So far, the study has confirmed there are extensive and extremely varied uses of BSA information across all stakeholders (including by the private sector) consistent with their missions.

Almost One in Four FBI and IRS-CI Investigations Use BSA Data

Director Blanco made the following remarks on the usefulness of BSA data:

All FBI subject names are run against the BSA database. More than 21 percent of FBI investigations use BSA data, and for some types of crime, like organized crime, nearly 60 percent of FBI investigations use BSA data. Roughly 20 percent of FBI international terrorism cases utilize BSA data.

The Internal Revenue Service-Criminal Investigation section alone conducts more than 126,000 BSA database inquiries each year. And as much as 24 percent of its investigations involving criminal tax, money laundering, and other BSA violations are directly initiated by, or associated with, a BSA report.

In addition to providing controlled access to the data to law enforcement, FinCEN also proactively pushes certain information to them on critical topics. On a daily basis, FinCEN takes the suspicious activity reports and we run them through several categories of business rules or algorithms to identify reports that merit further review by our analysts.

Our terrorist financing-related business rules alone generate over 1,000 matches each month for review and further dissemination to our law enforcement and regulatory partners in what we call a Flash report. These Flash reports enable the FBI, for example, to identify, track, and disrupt the activities of potential terrorist actors. It is incredibly valuable information.

But Which BSA Filings are Providing Real Value to Law Enforcement?

There is no doubt that the (roughly) 20 million BSA reports that are filed each year provide great value to law enforcement. But questions remain about the utility of those filings, and the costs of preparing them. Some of those questions include: (i) which of those reports provide value? (ii) what kind of value is being provided – tactical and/or strategic? (iii) can financial institutions eliminate the “no value” filings and deploy those resources to higher-value filings? (iv) can financial institutions automate the preparation and filing of the low value filings and deploy those resources to the highest-value filings?

I have written a number of articles on the need for better reporting on the utility of SAR filings. Links to three of them are:

SAR Feedback 314(d) – July 30 2019

BSA Reports and Federal Criminal Cases – June 5 2019

The TSV SAR Feedback Loop – June 4 2019

Conclusion

Kudos to Director Blanco and his FinCEN team for their initiative and efforts around the BSA Value Project. The results of the Project could be a game-changer for the financial industry’s BSA/AML programs. The industry is being inundated with calls to apply machine learning and artificial intelligence to make their AML programs more effective and efficient. But if those institutions don’t know which of their filings provide value, and arguably only one in four is providing value, they cannot effectively use machine learning or AI.

The entire industry is looking forward to the results of FinCEN’s BSA Value Project!

The WayBack Machine … and the Marihuana Problem in New York (circa 1944) – updated with the OFAC Fentanyl Drug Trafficking Organization Designation of August 21, 2019

One of the greatest investigative tools available today is the Internet Archive, a “non-profit library of millions of free books, movies, software, music, websites, and more” – https://archive.org/. The best tool in this online library is the WayBack Machine. It is described as follows:

The Internet Archive has been archiving the web for 20 years and has preserved billions of webpages from millions of websites. These webpages are often made up of, and link to, many images, videos, style sheets, scripts and other web objects. Over the years, the Archive has saved over 510 billion such time-stamped web objects, which we term web captures.

We define a webpage as a valid web capture that is an HTML document, a plain text document, or a PDF.

domain on the web is an owned section of the internet namespace, such as google.com or archive.org or bbc.co.uk. A host on the web is identified by a fully qualified domain name or FQDN that specifies its exact location in the tree hierarchy of the Domain Name System. The FQDN consists of the following parts: hostname and domain name.  As an example, in case of the host blog.archive.org, its hostname is blog and the host is located within the domain archive.org.

We define a website to be a host that has served webpages and has at least one incoming link from a webpage belonging to a different domain.

As of today, the Internet Archive officially holds 273 billion webpages from over 361 million websites, taking up 15 petabytes of storage.

Here’s an example of how the WayBack Machine can be used. In a federal criminal complaint unsealed on August 15, 2019 in the case of United States v Manish Patel (Eastern District of California, case no 19-MJ-0128), the affidavit supporting the complaint provided that the defendant had business cards that showed he was the CEO of The Sentient Law Group PC in New York City, but the website for that entity – http://www.sentientlawgroup.com – as accessed on August 5, 2019 did not show him as CEO.  But by simply typing that URL into the WayBack Machine’s search bar you find every instance of that website that was captured by the WayBack Machine. Viewing the first and last captures (on April 13, 2017 and February 12, 2019) shows the defendant Patel as the CEO, his practice focus areas (including cannabis law, which is ironic given that Patel was charged with multiple counts involving possession with intent to distribute marijuana).  This tool is particularly helpful in online child pornography cases, where defendants move and change websites, and was instrumental in a number of post-9/11 cases, where the English language Al Qaeda website changed dramatically after 9/11 … but its historical web pages remained accessible, thanks to the Internet Archive and its WayBack Machine.

OFAC Designation of the Zheng Drug Trafficking Organization – August 21, 2019

Another great example of the power of the WayBack Machine can be found in a series of federal criminal cases that culminated in OFAC designating the criminal defendants as Foreign Narcotics Kingpins. See the Treasury press release at https://home.treasury.gov/news/press-releases/sm756

One of those designated, Fujing Zheng, was indicted in federal court in Ohio in August 2018 (US v Zhang et al, Northern District of Ohio, case 18CR00474). In that 86-page indictment, the Government alleges that the Zhang organization used a website to market its illegal drugs – www.globalrc.net

What has happened to www.globalrc.net?

If you search for that URL today, you get the following:

As it shows, that domain has been seized by the DEA and is no longer accessible. But the WayBack Machine has captured and saved that website 65 times between April 8, 2009 and February 15, 2019:

And simply by selecting any of the 65 dates, you can access the captured website. An example is from January 6, 2017:

You can see the actual website used by the Zheng DTO back in 2017. A powerful investigative tool!

But there is more to be found on the Internet Archive. The twenty or so archived collections are incredible sources. Here is an example of a document from the “Journals” collection:

https://archive.org/details/TheMarihuanaProblemInTheCityOfNewYork-19441973Edition/page/n19

In 1944, Legendary New York Mayor F.H. LaGuardia commissioned a report to look into “The Marihuana Problem in the City of New York.” The forward is interesting. It provides:

“As Mayor of New York City, it is my duty to foresee and take steps to prevent the development of hazards to the health, safety, and welfare of our citizens. When rumors were recently circulated concerning the smoking of marihuana by large segments of our population and even by school children, I sought advice from The New York Academy of Medicine, as is my custom when confronted with problems of medical import.”

“The report of the present investigation covers every phase of the problem and is of practical value not only to our own city but to communities throughout the country. It is a basic contribution to medicine and pharmacology.”

“I am glad that the sociological, psychological, and medical ills commonly attributed to marihuana have been found to be exaggerated insofar as the City of New York is concerned. I hasten to point out, though, that the findings are to be interpreted only as a reassuring report of progress and not as encouragement to indulgence, for I shall continue to enforce the laws prohibiting the use of marihuana until and if complete findings may justify an amendment to existing laws. The scientific part of the research will be continued in the hope that the drug may prove to possess therapeutic value for the control of drug addiction.”

Try out the Internet Archive!

BSA Reports and Federal Criminal Cases – What’s the Connection?

54,000 Federal Criminal Cases … and 20,000,000 BSA Reports

If the question is “how many BSA reports are used in federal criminal cases?”, the answer may be “we don’t know.” But in fact, somebody knows whether and which BSA reports were used in, or led to, or somehow contributed to each and every criminal case filed in federal district courts across America. But having a way to obtain that information from the thousands of somebodies across 93 US Attorneys’ offices and dozens of federal law enforcement agencies has proven to be elusive.

If Only We Knew What We Know …

… is the title of a book written by C. Jackson Grayson and Carla O’dell (Simon and Schuster, 1998) that goes through the problems associated with the transfer of knowledge and best practices within an organization. Those problems are amplified when the transfers occur across organizations, and amplified again when the transfers occur between the public and private sectors.  If only the financial services community – the producers and filers of more than 20 million BSA reports every year – knew how many, and which of those filings were of tactical or strategic value to law enforcement as they bring over 50,000 new federal criminal cases every year.

US Attorneys Annual Statistical Reports

The Department of Justice publishes annual statistical reports that provide some insight into the numbers and types of criminal and civil cases filed across the 93 US Attorneys’ offices and 94 judicial districts in the United States. They are available at DOJ Annual Statistical Reports

The most recent report covers fiscal year 2017 (October 1, 2016 through September 30, 2017). It shows that there were 53,899 new criminal cases brought in FY2017 and 53,416 were closed. Notably, about 94% of federal criminal cases end in a guilty plea or guilty finding. And what law enforcement agencies are bringing those cases? About 43% of new federal criminal cases originated with either Customs & Border Patrol or Immigration & Customs Enforcement.

And what kinds of cases are being opened? The DOJ classifies its cases under “programs”, which is the primary or leading charge if there are multiple charges in a case or against a defendant. According to the FY2017 data, the leading programs are:

A few observations on this data. First, in FY2017 the 93 US Attorney’s offices brought only 132 federal drug possession cases charging 163 defendants. A subset of those involve marijuana possession charges. Separate data from prior years suggests that almost all of these are cases along the southwest border or on military bases.

Second, and as noted in the comment box above, data from FinCEN indicates that in the three fiscal years prior to FY2017, there was an average of just over 2.1 million SARs filed per year and about 19.2 million BSA reports in total (including SARs) filed per year. With about 54,000 criminal cases, that means that there are over 350 BSA reports filed for every federal criminal case brought.

But currently there is no means to determine how many of those criminal cases involved BSA reports, or how many of those BSA reports contributed to federal criminal cases.

See my previous article “FinCEN’s FY2020 Report to Congress Reveals its Priorities and Performance: FinCEN Needs More Resources – and a TSV SAR Feedback Loop – To Really Make a Difference in the Fight Against Crime & Corruption” at TSV SAR Feedback Loop

Artificial Intelligence – Who Is On The Hook When Things Go Wrong With Your AI System? You Are!

“Organisations and individuals developing, deploying or operating AI systems should be held accountable for their proper functioning”

For all the upstart fintechs out there that are trumpeting their innovative Artificial Intelligence-based solutions that can solve a financial institution’s financial crimes problems! … note that you may be held accountable when that AI system doesn’t quite turn out like your marketing materials suggested. Legal responsibility for something you design, build, and deploy is not a new concept, but how that “something” – in this case, the AI system you developed and installed at a client bank – actually works, and reacts, and adapts, over time could very be new ground that hasn’t been explored before. But many smart people are thinking about AI developers’ accountability, and other AI-related issues, and many of those have produced some principles to guide us as we develop and implement AI-based systems.

On May 22, 2019 the OECD published a Council Recommendation on Artificial Intelligence. At its core, the recommendation is for the adoption of five complimentary “value-based principles for responsible stewardship of trustworthy artificial intelligence. The link is Artificial intelligence and the actual recommendation is https://legalinstruments.oecd.org/en/instruments/OECD-LEGAL-0449#_ga=2.200835047.853048335.1559167756-681244095.1559167756

What’s the big deal about artificial intelligence?

The OECD recognized a number of things about AI that are worth including:

  • AI has pervasive, far-reaching and global implications that are transforming societies, economic sectors and the world of work, and are likely to increasingly do so in the future;
  • AI has the potential to improve the welfare and well-being of people, to contribute to positive sustainable global economic activity, to increase innovation and productivity, and to help respond to key global challenges;
  • At the same time, these transformations may have disparate effects within, and between societies and economies, notably regarding economic shifts, competition, transitions in the labour market, inequalities, and implications for democracy and human rights, privacy and data protection, and digital security;
  • Trust is a key enabler of digital transformation; that, although the nature of future AI applications and their implications may be hard to foresee, the trustworthiness of AI systems is a key factor for the diffusion and adoption of AI; and that a well-informed whole-of-society public debate is necessary for capturing the beneficial potential of the technology, while limiting the risks associated with it;
  • Given the rapid development and implementation of AI, there is a need for a stable policy environment that promotes a human-centric approach to trustworthy AI, that fosters research, preserves economic incentives to innovate, and that applies to all stakeholders according to their role and the context;
  • certain existing national and international legal, regulatory and policy frameworks already have relevance to AI, including those related to human rights, consumer and personal data protection, intellectual property rights, responsible business conduct, and competition, while noting that the appropriateness of some frameworks may need to be assessed and new approaches developed; and
  • Embracing the opportunities offered, and addressing the challenges raised, by AI applications, and empowering stakeholders to engage is essential to fostering adoption of trustworthy AI in society, and to turning AI trustworthiness into a competitive parameter in the global marketplace.

What is “Artificial Intelligence”?

The recommendation includes some helpful definitions of the major terms:

Artificial Intelligence System: a machine-based system that can, for a given set of human-defined objectives, make predictions, recommendations, or decisions influencing real or virtual environments. AI systems are designed to operate with varying levels of autonomy.

Artificial Intelligence System Lifecycle: four phases which can be sequential but may be iterative:

(i) design, data and models – a context-dependent sequence encompassing planning and design, data collection and processing, as well as model building;

(ii) verification and validation;

(iii) deployment; and

(iv) operation and monitoring

Artificial Intelligence Actors: AI actors are those who play an active role in the AI system lifecycle, including organisations and individuals that deploy or operate AI.

Is an OECD Recommendation binding on a country that has adopted it?

OECD Recommendations are not legally binding but they are highly influential and have many times formed the basis of international standards and helped governments design national legislation. For example, the OECD Privacy Guidelines adopted in 1980 and stating that there should be limits to the collection of personal data underlie many privacy laws and frameworks in the United States, Europe and Asia.

So the AI Principles are not binding, but the OECD provided five recommendations to governments:

  1. Facilitate public and private investment in research & development to spur innovation in trustworthy AI.
  2. Foster accessible AI ecosystems with digital infrastructure and technologies and mechanisms to share data and knowledge.
  3. Ensure a policy environment that will open the way to deployment of trustworthy AI systems.
  4. Empower people with the skills for AI and support workers for a fair transition.
  5. Co-operate across borders and sectors to progress on responsible stewardship of trustworthy AI.

Who developed the OECD AI Principles?

The OECD set up a 70+ member expert group on AI to scope a set of principles. The group consisted of representatives of 20 governments as well as leaders from the business (Google, Facebook, Microsoft, Apple, but not any financial institutions), labor, civil society, academic and science communities. The experts’ proposals were taken on by the OECD and developed into the OECD AI Principles.

What is the Purpose of the OECD Principles on AI?

The OECD Principles on Artificial Intelligence promote artificial intelligence (AI) that is innovative and trustworthy and that respects human rights and democratic values. The OECD AI Principles set standards for AI that are practical and flexible enough to stand the test of time in a rapidly evolving field. They complement existing OECD standards in areas such as privacy, digital security risk management and responsible business conduct.

What are the OECD AI Principles?

The Recommendation identifies five complementary values-based principles for the responsible stewardship of trustworthy AI:

1. Inclusive growth, sustainable development and well-beingAI systems should be designed in a way that respects the rule of law, human rights, democratic values and diversity, and they should include appropriate safeguards – for example, enabling human intervention where necessary – to ensure a fair and just society. And AI should benefit people and the planet by driving inclusive growth, sustainable development and well-being.

The actual text reads: “Stakeholders should proactively engage in responsible stewardship of trustworthy AI in pursuit of beneficial outcomes for people and the planet, such as augmenting human capabilities and enhancing creativity, advancing inclusion of underrepresented populations, reducing economic, social, gender and other inequalities, and protecting natural environments, thus invigorating inclusive growth, sustainable development and well-being.

2. Human-centred values and fairness AI actors should respect the rule of law, human rights and democratic values, throughout the AI system lifecycle. These include freedom, dignity and autonomy, privacy and data protection, non-discrimination and equality, diversity, fairness, social justice, and internationally recognized labor rights. To this end, AI actors should implement mechanisms and safeguards, such as capacity for human determination, that are appropriate to the context and consistent with the state of art.

3. Transparency and explainabilityAI Actors should commit to transparency and responsible disclosure regarding AI systems. To this end, they should provide meaningful information, appropriate to the context, and consistent with the state of art to foster a general understanding of AI systems, to make stakeholders aware of their interactions with AI systems, including in the workplace, to enable those affected by an AI system to understand the outcome, and, to enable those adversely affected by an AI system to challenge its outcome based on plain and easy-to-understand information on the factors, and the logic that served as the basis for the prediction, recommendation or decision.

4. Robustness, security and safetyAI systems should be robust, secure and safe throughout their entire lifecycle so that, in conditions of normal use, foreseeable use or misuse, or other adverse conditions, they function appropriately and do not pose unreasonable safety risk. To this end, AI actors should ensure traceability, including in relation to datasets, processes and decisions made during the AI system lifecycle, to enable analysis of the AI system’s outcomes and responses to inquiry, appropriate to the context and consistent with the state of art. And AI actors should, based on their roles, the context, and their ability to act, apply a systematic risk management approach to each phase of the AI system lifecycle on a continuous basis to address risks related to AI systems, including privacy, digital security, safety and bias.

5. AccountabilityAI actors should be accountable for the proper functioning of AI systems and for the respect of the above principles, based on their roles, the context, and consistent with the state of art. Organisations and individuals developing, deploying or operating AI systems should be held accountable for their proper functioning in line with the above principles.

What countries belong to the OECD?

Australia, Austria, Belgium, Canada, Chile, Czech Republic, Denmark, Estonia, Finland, France, Germany, Greece, Hungary, Iceland, Ireland, Israel, Italy, Japan, Korea, Latvia, Lithuania, Luxembourg, Mexico, Netherlands, New Zealand, Norway, Poland, Portugal, Slovak Republic, Slovenia, Spain, Sweden, Switzerland, Turkey, United Kingdom, United States

BigTech, FinTech, and the Battle Over Financial Services

BigTech vs FinTech – Which Will Replace Traditional Banks?

Two recent papers have looked at the attributes, relative strengths and weaknesses, and likelihood to emerge as the main challenger to traditional financial institutions, of two different species of technology company: BigTechs and FinTechs. The two papers are:

  1. Financial Stability Board’s (FSB) February 2019 paper titled “FinTech and Market Structure in Financial Services”, available at https://www.fsb.org/wp-content/uploads/P140219.pdf
  2. Bank for International Settlements’ (BIS) April 2019 Working Paper titled “BigTech and the changing structure of financial intermediation”, available at https://www.bis.org/publ/work779.pdf

The BIS Working Paper makes a pretty compelling argument that the BigTech firms have some distinct advantages over FinTechs that make them more likely to usurp traditional financial institutions. Advantages such as an existing customer base (that is familiar with a user interface and messaging platform), and access to capital (often without the constraints that financial institutions have). And the BIS paper also sets out some of the advantages that BigTech has over traditional financial institutions, such as the financial sector’s current dependence on BigTech’s cloud-based computing and storage (think of Amazon’s AWS), technological advantages such as artificial intelligence, machine learning, and APIs, and regulatory advantages (BigTech isn’t burdened with Dodd-Frank, Basel capital restrictions, model risk regulations, and anti-money laundering program regulations).

But what are the differences between “BigTech” and “FinTech”? Both papers provide definitions for, and examples of, the two terms:

BigTech
  1. FSB: “refers to large technology companies that expand into the direct provision of financial services or of products very similar to financial products”
  2. BIS: “refers to large, existing companies whose primary activity is in the provision of digital services, rather than mainly in financial services … BigTech companies offer financial products only as one part of a much broader set of business lines.”

Both the FSB and BIS have the same BigTech firms: Facebook, Amazon, Apple, Google, Alibaba, Tencent, Vodafone, among others.

FinTech
  1. FSB: “technology-enabled innovation in financial services that could result in new business models, applications, processes or products with an associated material effect on the provision of ‘financial services’ … used to describe firms whose business model focuses on these innovations.”
  2. BIS: “refers to technology-enabled innovation in financial services with associated new business models, applications, processes, or products, all of which have a material effect on the provision of financial services.”

Both the FSB and BIS use QuickenLoans and SOFI, among others, as examples of FinTech firms.

BigTech is really … Big

The BIS paper notes that the six largest global BigTech firms all have market capitalizations greater than the market capitalization of the largest global financial institution, JPMorgan Chase:

Which BigTech Firms are Providing What Financial Services Today?

The BIS paper provides a great summary table of the five main types of financial services that the eleven dominant BigTechs are currently providing. It’s clear from this table that the three Chinese BigTechs – Alibaba, Tencent, and Baidu – have the most comprehensive suite of financial services/products, followed by the US trio of Google, Amazon, and Facebook.

Conclusion

There is no conclusion. Every day brings new entrants and participants, shifts, and changes. The regulatory environments are rapidly changing (although regulators and regulations always lag the regimes they regulate). But these two papers provide some insights into the world of FinTech, BigTech, and financial services, and are worth spending some time on.

The “Ice Cream Social” Bandit – Former Bank Cash Vault Manager Stole $4.3 Million

Former Bank Cash Vault Manager Sentenced to 10 Years in Federal Prison for Stealing over $4 Million – Case Reveals Gaps in “Dual Control” Training

The scheme involved an “ice cream social” as an excuse to stay late, a private jet paid for with stolen bank funds, and training to get around dual controls

https://www.justice.gov/usao-ak/pr/former-vault-manager-sentenced-10-years-federal-prison-stealing-over-4-million-keybank

According to the US Attorney for Alaska, on April 29, 2019, Gerardo Valenzuela aka Gary Cazarez was sentenced to serve 10 years in prison after pleading guilty to stealing more than $4.3 million from the cash vault of KeyBank in Anchorage Alaska. The theft occurred on July 26, 2011, and Valenzuela fled to Mexico. He was arrested by Mexican authorities on Aug. 2, 2011, when a random search of his luggage at an internal (Mexico) checkpoint revealed $3.8 million in cash, firearms, and ammunition. Cazarez was charged and convicted in Mexico of criminal offenses analogous to money laundering and illegal possession of firearms for smuggling the cash and firearms into Mexico.  After serving a term of seven years in prison for his Mexican conviction, Cazarez was extradited to the U.S. to face the Alaska bank theft charges.

The theft was well conceived, well planned, and well executed. It also reveals a few interesting potential gaps that banks could have in their controls and training programs. The US Attorney’s press release tells the story:

According to court documents, on or about July 29, 2011, Valenzuela was the Vault Manager for KeyBank when he stole approximately $4.3 million dollars in U.S. Currency from KeyBank in Anchorage, and then flew in a chartered jet to Washington, bought a car, obtained an AK-47 for protection and drove to Mexico.  He mailed his and his girlfriend’s cell phones to Florida and New York to throw off investigators.  The investigation revealed that Valenzuela’s motive to rob his employer was his concern that Keybank was going to make his position obsolete and he would be out of a job.

Months prior to his theft, Valenzuela told his girlfriend that he could rob the bank noting that the bank had video surveillance, but no physical surveillance at that time.  In June 2011, he started to put his plan into action, which began with requesting that his brother obtain a firearm for him.  On July 8, 2011, Valenzuela falsely trained new employees on vault procedures, effectively removing dual controls over the vault and laying the groundwork for his ability to steal $4.3 million a few weeks later.

Here are the first two potential control gaps. First, the bank video surveillance but no physical surveillance. Second, he was able to falsely train new employees on vault procedures, effectively removing dual controls over the vault.

On July 26, 2011, Valenzuela purchased an airplane ticket for his girlfriend from Anchorage to Seattle.  Two days later, he then stole $30,000 from Keybank, which he used $24,000 to rent a private jet for himself to make his escape the next day.  On the day of his theft, July 29, 2011, Valenzuela told the branch manager he was going to organize an ice cream social for bank customers, giving him an excuse to stay late as he cleaned up.  Late at night and without dual controls in place, Valenzuela was able to access the vault without another employee present.  He boxed up $4.3 million in cash, rolled it out of the vault to his car in the parking lot, and loaded the money into his car.  Valenzuela drove to where the private jet was waiting for him in Anchorage and he flew to Seattle.

Valenzuela had set the timer on the vault lock for the maximum time allowable, giving him six days to escape to Mexico.  By the time Keybank discovered his theft, Valenzuela and his girlfriend were already in Mexico; however, Valenzuela was arrested by Mexican authorities on Aug. 2, 2011, when a random search of his luggage at a checkpoint revealed $3.8 million in cash, firearms, and ammunition.

Here is the third control gap: the vault manager was able to set the timer on the vault lock for six days. July 29, 2011 was a Friday, so at most the vault timer should have been set for two days, not six.

Cazarez was charged and convicted in Mexico of criminal offenses analogous to money laundering and illegal possession of firearms for smuggling the cash and firearms into Mexico.  After serving a term of seven years in prison for his Mexican conviction, Cazarez was extradited to the U.S. for the crimes charged in the superseding indictment.

Chief Judge Burgess noted that the most important sentencing factors in this case were the “magnitude of the crime” and Valenzuela’s lack of candor with the court.  At the sentencing hearing, evidence was presented that Valenzuela had executed a “fail safe plan” that included stashing $500,000 in Washington before he fled to Mexico so that if he were caught he would still have money when he was released.  That money has still not been recovered.

Appropriate controls on the timers on vaults, and ensuring there is physical surveillance to supplement any video surveillance, are two controls that should be in place for most financial institutions. But the most interesting control breakdown was around training the staff on appropriate dual control procedures. As the very name – dual – suggests, these controls are intended to involve (at least) two people on the theory that it is much harder for two people to conspire and act together than it is for one person to act alone. But if the person doing the training is both corrupt and one of the two people involved in the execution of the dual control, that control is ineffective, and the innocent person that received the fraudulent training is none the wiser.

So … all institutions that have dual controls, check to see who is doing the training: it cannot be one of the people involved in the execution of that control!

Regulatory Lag & Drag – Are There FinTech Solutions?

The RegTech, SupTech, and FinTech communities are focused on developing new technologies to speed up, simplify, and streamline financial institutions’ ability to implement new rules, regulations, and regulatory guidance. But there are two other stages of the regulatory life cycle that may be longer and more problematic for financial institutions than implementing new regulations: these are the time it takes for new regulations to be written and published (“Regulatory Lag”), and the time it takes to enforce those regulations (“Regulatory Drag”).

Time to Regulate – or “Regulatory Lag”.

This lag occurs where a new risk emerges, or a new product is introduced, or an existing product is used in new ways. There is always a lag between that new risk or product and the resulting legislative and/or regulatory response. In the meantime, institutions have to begin addressing the new risks when they first emerge – they can’t wait for new rules, regulatory guidance, and regulations to begin the multi-year people, process, and technology changes necessary to address the requirements of the regulation. Those early, pre-rule and pre-regulation efforts at building controls to address new risks can be expensive, and institutions run the risk of missing the mark and having to re-do much of what they’ve built. The best example of regulatory lag in the AML space is 9/11, which saw legislation passed in 45 days (October 2001), regulations published two years later (2003), and regulatory guidance in the form of the BSA Exam Manual two years after that (2005). Although it was only 45 days that financial institutions knew about the new information sharing provisions in section 314 of the USA PATRIOT Act, it was almost another four years before financial institutions knew how their regulators would examine their compliance with those information sharing provisions. It was this “regulatory lag” that led to my written statement (in December 2006) that “we’ll be judged tomorrow on what we’re building today, based on regulations that haven’t yet been written and best practices that haven’t been shared.”

Time to Enforce – or “Regulatory Drag”

Public enforcement actions (and prosecutions) drive a lot of compliance-related behavior in financial services. Yet there are multi-year delays between when the impugned behavior occurred and when a public enforcement action (and/or prosecution) makes them known to the industry. FinCEN’s December 2014 action against MoneyGram’s former BSA Officer is a good example: that action was made public in December 2014, and alleged violations of the Bank Secrecy Act that occurred from 2003 through May 2008, or more than 6 ½ years from the last day of the impugned activity and when the public action was taken.

What Can Technology Do To Address Regulatory Lag and Drag?

Regulatory lag and drag have been around for as long as there have been regulators. But with the world speeding up as much as it is, with new products and services, and new providers, being rolled out and created much faster than regulatory bodies can manage, there must be changes made in the entire regulatory life cycle.

FinTech providers and their customers demand a fast revolution. Regulators prefer a slow, deliberate evolution. There has to be a better way to identify new and emerging risks, to draft and communicate regulations to address those risks, and to implement the needed controls to manage those risks.

I’m not sure what can be done from a purely technology perspective to speed up regulators (and prosecutors), but the proponents of FinTech, RegTech, and SupTech solutions shouldn’t just focus on digitizing the implementation of new regulations, but on digitizing the entire regulatory life cycle: the regulatory lag between new risks and new regulations, the regulations themselves, and the regulatory drag from regulatory problem to public resolution.

Posted on LinkedIn on January 28, 2019 https://www.linkedin.com/pulse/regulatory-lag-drag-fintech-solutions-jim-richards/