[Federal Register Volume 76, Number 140 (Thursday, July 21, 2011)]
[Rules and Regulations]
[Pages 43585-43597]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2011-18309]
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DEPARTMENT OF THE TREASURY
Financial Crimes Enforcement Network
31 CFR Parts 1010, 1021 and 1022
RIN 1506-AA97
Bank Secrecy Act Regulations; Definitions and Other Regulations
Relating to Money Services Businesses
AGENCY: Treasury Department, Financial Crimes Enforcement Network
(FinCEN).
ACTION: Final rule.
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SUMMARY: The Financial Crimes Enforcement Network (``FinCEN''), a
bureau of the Department of the Treasury (``Treasury''), is revising
the regulations implementing the Bank Secrecy Act (``BSA'') regarding
money services businesses (``MSBs'') to clarify which entities are
covered by the definitions.
The changes more clearly delineate the scope of entities regulated
as MSBs, so that determining which entities are obligated to comply is
more straightforward and predictable. This rulemaking amends the
current MSB regulations by: ensuring that certain foreign-located
persons engaging in MSB activities within the United States are subject
to the BSA rules; updating the MSB definitions to reflect past guidance
and rulings, current business operations, evolving technologies, and
merging lines of business; and separating the provisions dealing with
stored value from those dealing with issuers, sellers, and redeemers of
traveler's checks and money orders.
DATES: Effective Date: This rule is effective September 19, 2011.
Compliance Date: The compliance date for the amendments to 31 CFR
1022.380 is January 23, 2012.
FOR FURTHER INFORMATION CONTACT: The FinCEN regulatory helpline at
(800) 949-2732 and select Option 1.
SUPPLEMENTARY INFORMATION:
I. Background
A. Statutory and Regulatory Background
The BSA, Titles I and II of Public Law 91-508, as amended, codified
at 12 U.S.C. 1829b, 12 U.S.C. 1951-1959, and 31 U.S.C. 5311-5314 and
5316-5332, authorizes the Secretary of the Treasury (the ``Secretary'')
to issue regulations requiring financial institutions to keep records
and file reports that the Secretary determines ``have a high degree of
usefulness in criminal, tax, or regulatory investigations or
proceedings, or in the conduct of intelligence or counterintelligence
matters, including analysis, to protect against international
terrorism.'' \1\ In addition, the Secretary is authorized to impose
anti-money laundering (``AML'') program requirements on financial
institutions.\2\ The Secretary's authority to administer the BSA has
been delegated to the Director of FinCEN.\3\ FinCEN has implemented the
BSA through regulations (``BSA regulations,'' ``implementing
regulations'' or ``BSA rules'') that appear at 31 CFR Chapter X.\4\
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\1\ 31 U.S.C. 5311.
\2\ 31 U.S.C. 5318(h).
\3\ See Treasury Order 180-01 (Sept. 26, 2002).
\4\ On October 26, 2010, FinCEN issued a final rule creating a
new Chapter X in title 31 of the Code of Federal Regulations for the
BSA regulations. See 75 FR 65806 (October 26, 2010) (Transfer and
Reorganization of Bank Secrecy Act Regulations Final Rule) (referred
to herein as the ``Chapter X Final Rule''). The Chapter X Final Rule
became effective on March 1, 2011. Because the Notice of Proposed
Rulemaking, Definitions and Other Regulations Relating to Money
Services Businesses, 74 FR 22129 (May 12, 2009), was issued before
the Chapter X Final Rule became effective, it was proposed in the 31
CFR Part 103 format. In this Final Rule, for ease of reference and
where appropriate, we have included the former 31 CFR Part 103
citation after the 31 CFR Chapter X regulatory citation.
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The BSA defines the term ``financial institution'' to include, in
part: a currency exchange; an issuer, redeemer, or cashier of
travelers' checks, checks, money orders, or similar instruments; the
United States Postal Service; a person who engages as a business in the
transmission of funds; and any business or agency which engages in any
activity determined by regulation to be an activity similar to, related
to, or a substitute for these activities.\5\
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\5\ 31 U.S.C. 5312(a)(2)(J), (K), (R), (V), and (Y).
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FinCEN has issued regulations under the BSA implementing the
recordkeeping, reporting, and other requirements of the BSA with
respect to these types of financial institutions. These regulations
refer to these types of financial institutions as ``money services
businesses'' (``MSBs'').\6\ Like other financial institutions under the
BSA, MSBs must implement AML programs, make certain reports to FinCEN,
and maintain certain records to facilitate financial transparency. MSBs
are generally required to: (1) Establish written AML programs that are
reasonably designed to prevent the MSB from being used to facilitate
money laundering and the financing of terrorist activities; \7\ (2)
file Currency Transaction Reports (``CTRs'') \8\ and Suspicious
Activity Reports (``SARs''); \9\ and (3) maintain certain records,
including those relating to the purchase of certain monetary
instruments with currency,\10\ transactions by currency dealers or
exchangers (to be called ``dealers in foreign exchange'' under this
rulemaking),\11\ and certain transmittals of funds.\12\ Most types of
MSBs are required to register with FinCEN \13\ and all are subject to
examination for BSA compliance by the Internal Revenue Service
(``IRS'').\14\
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\6\ See 31 CFR 1010.100(ff) (formerly 31 CFR 103.11(uu)).
\7\ See 31 CFR 1022.210 (formerly 31 CFR 103.125).
\8\ See 31 CFR 1010.311 (formerly 31 CFR 103.22).
\9\ See 31 CFR 1022.320 (formerly 31 CFR 103.20). Check cashers
and transactions solely involving the issuance, sale, or redemption
of stored value are not covered by the SAR requirement. See 31 CFR
1022.320(a)(1), (5) (formerly 31 CFR 103.20(a)(1), (5). FinCEN
recently proposed imposing a SAR requirement with respect to
transactions involving stored value. See Notice of Proposed
Rulemaking, Amendment to the Bank Secrecy Act Regulations--
Definitions and Other Regulations Relating to Prepaid Access, 75 FR
36589 (June 28, 2010).
\10\ See 31 CFR 1010.415 (formerly 31 CFR 103.29).
\11\ See 31 CFR 1022.410 (formerly 31 CFR 103.37).
\12\ See 31 CFR 1010.410(e)-(f) (formerly 31 CFR 103.33(f)-(g)).
\13\ See 31 CFR 1022.380 (formerly 31 CFR 103.41).
\14\ See 31 CFR 1010.810(b) (formerly 31 CFR 103.56(b)(8)).
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B. Past Public MSB Meetings
In 1997, FinCEN held public meetings to give members of the
financial services industry an opportunity to discuss the proposed MSB
regulations and any impact they might have on operations.\15\
[[Page 43586]]
In drafting the final rules defining the MSB categories,\16\ FinCEN
relied in part on the comments made in these public forums.
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\15\ These public meetings were held in Vienna, Virginia, on
July 22, 1997; New York, New York, on July 28, 1997; San Jose,
California, on August 1, 1997; Chicago, Illinois, on August 15,
1997; and Vienna, Virginia, on September 3, 1997. The discussions
focused on how businesses operate and how best to regulate them.
\16\ Definitions Relating to, and Registration of, Money
Services Businesses, 64 FR 45438 (Aug. 20, 1999) (``1999
Rulemaking'').
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On March 8, 2005, FinCEN held a fact-finding meeting in Washington,
DC on the provision of banking services to MSBs.\17\ MSBs recounted
their challenges in obtaining and maintaining banking services due to
the perception that their businesses posed a high risk of money
laundering and terrorist financing. In 2006, FinCEN issued an advance
notice of proposed rulemaking seeking input on how to address these
challenges,\18\ and received 142 comments in response, which have
informed this rulemaking.\19\
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\17\ FinCEN conducted the meeting in conjunction with the Non-
bank Financial Institutions and Examination Subcommittees of the
Bank Secrecy Act Advisory Group (``BSAAG''). BSAAG is an advisory
group created by the Annunzio-Wylie Anti-Money Laundering Act,
consisting of industry, regulatory, and law enforcement participants
for the purpose of engaging in open dialogue related to the
protection of the U.S. financial system from money laundering,
terrorist financing, and other abuses. BSAAG uses a variety of
permanent and ad hoc subcommittees to identify and analyze relevant
issues. Public Law 102-550, Title XV, sec. 1564 (Oct. 28, 1992), 106
Stat. 4073.
\18\ Provision of Banking Services to Money Services Businesses,
71 FR 12308 (March 10, 2006).
\19\ These comments are available in files dated March 10 and
May 15, 2006 at http://www.fincen.gov/statutes_regs/bsa/regs_proposal_comment.html.
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C. Need for Review and Updates
More than ten years have passed since FinCEN issued the BSA
regulations defining the categories of MSBs.\20\ Since that time,
FinCEN has received numerous requests to apply the MSB regulations to
fact patterns specific to particular businesses. Over one-third of
these requests came from persons inquiring whether or not they were an
MSB.\21\ Some of these requests for guidance were prompted by
significant technological advances such as stored value products and
the online provision of financial services. These and other
developments have changed the nature of the MSB industry. Where
possible, FinCEN has provided guidance to the industry on how to
interpret and apply the regulations.
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\20\ See 1999 Rulemaking, 64 FR 45438 (Aug. 20, 1999). For a
discussion of this history, see also the Notice of Proposed
Rulemaking FinCEN; Amendment to the Bank Secrecy Act Regulations--
Definitions and Other Regulations Relating to Money Services
Businesses, 74 FR 22129, 22131 (May 12, 2009).
\21\ This statistic comes from a review of requests for guidance
from FinCEN's Regulatory Helpline.
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With respect to check cashers and money transmitters in particular,
FinCEN has developed a large body of guidance in the years since the
issuance of the final MSB regulations in 1999.\22\ Similarly, over the
years, FinCEN has issued guidance and administrative rulings that
provide examples of activities that do not meet the regulatory
definition of a money transmitter, even though entities engaged in such
activities may be involved in accepting and transmitting funds.\23\
Given the nature and scope of these important interpretative rulings,
FinCEN has updated, streamlined, and clarified the MSB regulations in
this rulemaking by incorporating and extending these interpretations in
the regulatory revisions.
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\22\ See FinCEN Ruling 2002-2 (Definition of Check Casher
(Payday Lenders)) (Feb. 5, 2002) and FinCEN Guidance 2006-G005
(Frequently Asked Questions--Businesses Cashing Their Own Checks)
(March 31, 2006). For a discussion of this guidance, see Notice, 74
FR at 22131.
\23\ See FinCEN Rulings: 2003-8 (Definition of Money Transmitter
(Merchant Payment Processor)) (Nov. 19, 2003); 2004-4 (Definition of
Money Services Businesses (Debt Management Company)) (Nov. 24,
2004); 2008-R005 (Whether Certain Reloadable Card Operations are
Money Services Businesses) (March 10, 2008) (Merchants and ATMs
associated with a network of banks were not deemed money
transmitters); and 2008-R006 (Whether an Authorized Agent for the
Receipt of Utility Payments is a Money Transmitter) (May 21, 2008).
For a discussion of these rulings, see Notice, 74 FR at 22131-2.
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II. Notice of Proposed Rulemaking
The final rule contained in this document is based on the Notice of
Proposed Rulemaking ``Definitions and Other Regulations Relating to
Money Services Businesses'' published in the Federal Register on May
12, 2009 (the ``Notice'').\24\ With the intent of more clearly
delineating the scope of entities regulated as MSBs, the Notice
proposed a number of changes to the MSB definitions, in particular: (1)
Emphasizing that the MSB definition is based on a person's activities;
(2) ensuring that certain foreign-located persons engaged in MSB
activities within the United States, such as having customers located
in the United States, are subject to the BSA rules; (3) separating the
provisions dealing with stored value from those dealing with issuers,
sellers, and redeemers of traveler's checks and money orders; (4)
deferring the proposal of a new definition of stored value to a
separate rulemaking; and (5) combining the definitions in 31 CFR
1010.100(ff)(3) (formerly 31 CFR 103.11(uu)(3)) and 31 CFR
1010.100(ff)(4) (formerly 31 CFR 103.11(uu)(4)) into one paragraph
dealing with both issuers and sellers of traveler's checks and money
orders excluding stored value. The Notice also specifically requested
comment on a number of aspects of the proposed changes, particularly
with respect to a definition of the term ``funds,'' aggregating
multiple MSB services for threshold purposes, foreign-located MSBs,
thresholds, and stored value. The Notice also proposed a number of
minor edits to make the regulations more readable.
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\24\ See 74 FR 22129 (May 12, 2009).
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III. Comments on the Notice--Overview and General Issues
The comment period for the Notice ended on September 9, 2009.
FinCEN received a total of 25 comment letters.\25\ Of these, two were
submitted by depository institutions, eight by industry associations,
seven by various industry participants, two by government agencies, and
six by individuals. Generally, commenters were supportive of the
proposals to clarify the MSB definitions. FinCEN requested comment on a
number of issues for informational purposes that are not addressed by
this final rule, such as stored value-related issues, whether check
cashers should have SAR filing requirements and whether additional
recordkeeping requirements for MSBs should be implemented. Although
these requests for comment were not tied to any specific regulatory
changes FinCEN was proposing in the Notice, the information provided by
commenters can be useful to FinCEN in formulating policy decisions in
the future. FinCEN values and appreciates the comments received on
these questions.
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\25\ All comments to the Notice are available for public viewing
at http://www.regulations.gov.
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Stored Value-Related Issues \26\
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\26\ In June 2010 FinCEN proposed replacing the term ``stored
value'' with ``prepaid access'' without intending to broaden or
narrow the scope of the term, but instead to use terminology
commonly used by the industry. See Notice of Proposed Rule Making,
Amendment to the Bank Secrecy Act Regulations--Definitions and Other
Regulations Relating to Prepaid Access, 75 FR 36589 (June 28, 2010).
At the time the Notice was issued, FinCEN had not yet proposed
changing the terminology. This final rule uses the term ``stored
value.'' Any changes in defined terms will be addressed in a
subsequent rulemaking regarding prepaid access.
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Approximately half of the comments received in response to the
Notice addressed stored value-related issues that responded to
questions and requests for comment posed in the Notice. The questions
were intended to elicit responses that would assist FinCEN's effort to
regulate stored value.
[[Page 43587]]
On May 22, 2009, shortly after the Notice was published, the Credit
Card Accountability, Responsibility and Disclosure Act of 2009
(``Credit CARD Act'') \27\ was signed into law. Section 503 of the
Credit CARD Act requires the Secretary to ``issue regulations in final
form implementing the Bank Secrecy Act, regarding the sale, issuance,
redemption, or international transport of stored value, including
stored value cards.'' The congressional mandate of Section 503 of the
Credit CARD Act is broader in scope than the stored value-related
questions posed in the Notice.
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\27\ The Credit CARD Act, Public Law 111-24, codified at 5
U.S.C. 57, Chapter 57; 11 U.S.C. 111; 15 U.S.C. 1601, 1602, 1632,
1637, 1640, 1650, 1661, 1666, 1666b, 1666c, 1681b, 1681j, 1693, 41
and 632; 20 U.S.C. 1001 and 1002; 31 U.S.C. 5316 (May 22, 2009).
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In furtherance of that mandate, FinCEN has separately published a
notice of proposed rulemaking specific to stored value, which FinCEN
has proposed to rename ``prepaid access'' (the ``Prepaid Access
NPRM'').\28\ FinCEN believes that to address stored value-related
issues in this MSB rule could cause confusion among the public.
Accordingly, FinCEN has decided to comprehensively address stored
value-related issues in the pending Prepaid Access rulemaking,
generally including those stored value-related issues raised in the
Notice. The comments received in response to the Notice provided
valuable insights and were considered in drafting the Prepaid Access
NPRM.
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\28\ See 75 FR 36589 (June 28, 2010).
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Definition of ``Money Transmitter''
In the Notice, FinCEN proposed to revise several portions of the
current definition of ``money transmitter'' to clarify which activities
are covered by or excluded from the definition. Most commenters
generally supported the proposed changes. All commenters supported
excluding from the definition of ``money transmitter'' persons that
have only a ``custodial interest'' in currency they are
transporting.\29\ One commenter construed the definition of ``money
transmitter'' to exclude the agents of a principal money transmitter.
FinCEN wishes to clarify that any person that satisfies the definition
of a ``money services business,'' including an agent, is an MSB.
Whether it is the agent of another MSB is relevant only for
registration purposes. Two commenters suggested additional exclusions
to the definition of ``money transmitter'' for intermediaries and
certain bill payment services. The suggestions regarding intermediaries
and certain bill payment services are discussed further in the Section-
by-Section Analysis.
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\29\ The ``custodial'' exclusion relates to a person engaged in
physical transportation, such as an armored car. For a more
comprehensive discussion, see Section IV.F. of this rule. See also
Notice at 74 FR 22138.
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Definition of ``Currency Dealer or Exchanger''
In the Notice, FinCEN proposed to make several changes to the
definition of ``currency dealer or exchanger'' (to be called ``dealers
in foreign exchange'' under this rulemaking) to more accurately reflect
the actual underlying activity of the industry. Eight commenters
addressed various issues related to this definition. Most commenters
supported the proposed changes. As a result, the proposal was adopted
without change. These comments are further discussed in the Section-by-
Section Analysis below.
FinCEN received a comment letter from the Commodity Futures Trading
Commission (``CFTC'') regarding certain amendments recently made to the
Commodity Exchange Act (``CEA''), which, among other things, adds a new
registration category for dealers in off-exchange retail foreign
exchange known as ``retail foreign exchange dealers'' (``RFEDs'').\30\
MSBs, including dealers in foreign exchange, do not include persons
registered with, and regulated or examined by, the CFTC. FinCEN is
considering the CFTC's comments and has decided that it would not be
appropriate to address the issue of RFEDs in this rulemaking.
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\30\ See Food, Conservation, and Energy Act of 2008, Public Law
No. 110-246, Sec. 13101, 122 Stat. 1651, 2189-94 (2008) (amending
section 2(c)(2) of the CEA, 7 U.S.C. 2(c)(2)).
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IV. Section-by-Section Analysis
A. Refining the General Definition of ``Money Services Business'' Doing
Business
Prior to this rulemaking, the regulatory definition of MSB covered
``[e]ach agent, agency, branch or office within the United States of
any person doing business, whether or not on a regular basis or as an
organized business concern, in one or more of the capacities listed in
paragraphs (ff)(1) through (ff)(6) of this section.'' \31\ In the
Notice, FinCEN proposed to amend 31 CFR 1010.100(ff) (formerly 31 CFR
103.11(uu)) by removing the phrase ``doing business,'' and replacing it
with the phrase ``engaged in activities.'' FinCEN proposed this
amendment because the phrase ``doing business'' has been misunderstood
as an implied reference to the status that an entity has taken on
itself or been assigned, such as a business licensed by a state. Based
on such a misunderstanding, some have wrongly concluded that an
unlicensed business is not subject to regulation as an MSB, even if it
is engaged in one or more of the activities listed in 31 CFR
1010.100(ff)(1)-(5). Most of the comments received regarding the
proposed change were supportive. However, although FinCEN emphasized in
the Notice that the proposed change would not expand the definition of
MSB beyond its present scope, two commenters expressed concerns about
this proposed change.
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\31\ 31 CFR 1010.100(ff) (formerly 31 CFR 103.11(uu)) (emphasis
added).
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One commenter argued that removing the phrase ``doing business''
from the regulations would cause the definition of MSB to include
persons who were not in fact doing business as MSBs, and asserted that
expanding the category to this extent would be beyond FinCEN's powers
under the BSA, which specifically refers to several types of financial
institutions as ``businesses'' in several places.\32\
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\32\ 31 U.S.C. 5312(a)(2)(R), (T), (W), (Y), (Z); 31 U.S.C
5330(d).
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FinCEN will not remove the phrase ``doing business'' from the
definition of MSB in this final rule. Instead, the definition will be
rephrased to state that an MSB is ``[a] person wherever located doing
business, whether or not on a regular basis or as an organized or
licensed business concern, wholly or in substantial part within the
United States, in one or more of the capacities listed in paragraphs
(ff)(1) through (ff)(6) of this section.'' We moved the qualifying
phrase ``whether or not on a regular basis or as an organized business
concern'' from the end of the sentence to immediately follow ``doing
business'' in an effort to emphasize our concern that ``doing
business'' can be misinterpreted to refer to status, not activity. To
that end, the words ``or licensed'' have been added before ``business
concern'' to further clarify the issue.
FinCEN wishes to emphasize that whether a person is subject to
regulation as an MSB does not depend on factors such as whether the
person is licensed as a business by any state; whether the person has
employees; or whether the person is engaged in a for-profit venture.
Although the final rule continues to use the phrase ``doing business,''
it is a person's activities, rather than formal business status, that
would cause the person to be categorized as an MSB.
Another commenter suggested that the change proposed by the Notice
might expand the definition of MSB to
[[Page 43588]]
include, for example, an individual who cashed a check as an
accommodation for a family member. Despite not moving forward with the
change proposed in the Notice, FinCEN remains concerned that the
definition might be misunderstood to include such an individual. In
response to this concern, the final rule includes a provision that
excludes ``a natural person who engages in an activity identified in
paragraphs (ff)(1) through (ff)(5) of this section on an infrequent
basis and not for gain or profit'' from the MSB definition. By using
the phrase ``a natural person'' in the limitation, FinCEN excludes only
individuals; not business entities, non-profits, or other legal persons
from the MSB definition. By ``infrequent'' activities, FinCEN intends
to limit the exclusion to activity that is rare.\33\ By ``gain or
profit,'' FinCEN intends this exclusion not to be available to persons
engaging in these activities for the purpose of monetary gain or other
economic benefit, such as an exchange of valuable favors. This
exclusion forestalls any interpretation of the definition of MSB to
include persons solely providing accommodation services to family
members, as in the commenter's hypothetical. Nevertheless, whether a
person engages in MSB activities depends on all of the facts and
circumstances of each case.
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\33\ This limitation should be interpreted to mean activities
that are not frequent as that term is used in FinCEN's Guidance On
Interpreting ``Frequently'' Found In The Criteria For Exempting A
``Non-Listed Business'' Under 31 CFR 103.22(d)(2)(vi)(B), (November
2002), http://www.fincen.gov/statutes_regs/guidance/html/final_definition_of_frequent.html.
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Activity Threshold
Currently, the MSB regulations apply to persons engaged in
specified activities that exceed $1,000 for any person in any day
(``activity threshold''). The activity threshold applies to all MSB
categories \34\ except money transmitters, which do not have an
activity threshold. FinCEN proposed no changes to the activity
thresholds in this rulemaking. However, FinCEN sought comments from the
public regarding whether possible adjustments to the activity threshold
should be made in a future rulemaking. More than one-third of all
comment letters received in response to the Notice expressed an opinion
regarding the current activity thresholds. Several commenters supported
the proposition that the threshold should be reviewed, but expressed no
opinion as to whether it should be increased, decreased, eliminated, or
maintained at current levels. One commenter supported the elimination
of all thresholds to create uniformity among different types of MSBs,
and argued that the thresholds are ineffective insofar as one can
operate under those levels without decreasing the risk of money
laundering. Another commenter supported raising the thresholds, and
argued that the current levels place an undue burden on small
businesses. Several commenters supported adjusting the thresholds to
take into account disparate thresholds imposed by various state
authorities, inflation, or the transaction volume of each individual
MSB. Finally, several commenters supported maintaining the current
thresholds.
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\34\ FinCEN has proposed a modified application of the $1,000
activity threshold with respect to prepaid access, such that
providers of prepaid access clearly marked with a value not
exceeding $1,000 would not be subject to regulation as an MSB. See
Definitions and Other Regulations Relating to Prepaid Access, 75 FR
36589 (June 28, 2010).
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FinCEN also sought specific comments from the public regarding
whether transactions involving multiple MSB services should be
aggregated together for purposes of determining whether the activity
threshold has been met. The comments received on this proposal stressed
the logistical complications of compliance with an aggregation
requirement on the part of retailers that sell multiple MSB products
and act as agents for multiple MSBs. All comments received regarding
this proposal were opposed to it.
FinCEN will continue to study these issues and consider the need
for a separate rulemaking to adjust the MSB activity thresholds.
Foreign-Located MSBs
FinCEN proposed to amend 31 CFR 1010.100(ff) to provide that
foreign-located persons engaging in MSB activities in the United States
are subject to the BSA rules. Specifically, FinCEN proposed to revise
31 CFR 1010.100(ff) so that an entity qualifies as an MSB based on its
activity within the United States, not the physical presence of one or
more of its agents, agencies, branches, or offices in the United
States. This proposal arose out of the recognition that the Internet
and other technological advances make it increasingly possible for
persons to offer MSB services in the United States from foreign
locations. FinCEN seeks to ensure that the BSA rules apply to all
persons engaging in covered activities within the United States,
regardless of each person's physical location. To permit foreign-
located persons to engage in MSB activities within the United States
and not subject such persons to the BSA would be unfair to MSBs
physically located in the United States and would also undermine
FinCEN's efforts to protect the U.S. financial system from abuse.
Of the seven comments received on the issue of extending the BSA
regulations to cover foreign-located MSBs conducting activities in the
United States, five commenters supported it, including two government
and three industry commenters. The two commenters opposed were from
industry.
Two commenters argued that a foreign-located person's mere
maintenance of a bank account in the United States should not cause
that person to be defined as an MSB. FinCEN agrees with that
position.\35\ Under the final rule, a foreign-located person will be
subject to the BSA as an MSB to the extent that it does business in one
or more of the capacities listed in 1010.100(ff)(1) through
1010.100(ff)(5) wholly or in substantial part within the United
States.\36\ Whether or not a foreign-located person's MSB activities
occur within the United States depends on all of the facts and
circumstances of each case, including whether persons in the United
States are obtaining MSB services from the foreign-located person, such
as sending money to or receiving money from third parties through the
foreign-located person.
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\35\ See FinCEN Ruling 2004-1 (Definition of Money Services
Business) (Foreign-Located Currency Exchanger With U.S. Bank
Account) (A foreign-located currency exchanger whose only presence
in the United States was a bank account was not deemed an MSB when
the currency exchange transactions occurred solely in a foreign
country for foreign-located customers and the use of the U.S. bank
account was limited to issuing and clearing dollar-denominated
monetary instruments.) (March 29, 2004).
\36\ For an expanded discussion of the nature of activities that
will subject a foreign-located person to the BSA as an MSB, please
refer to the Notice, 74 FR at 22133.
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A commenter also noted that foreign banks, broker dealers, and
possibly other financial institutions might be subject to the MSB
regulations. FinCEN does not intend to include these institutions in
the MSB definition. FinCEN, therefore, has expanded the limitations to
the MSB definition to cover foreign banks, as well as other foreign
financial agencies that engage in financial activities that, if
conducted in the United States, would require the foreign financial
agency to be registered with the Securities and Exchange Commission
(``SEC'') or CFTC. These provisions parallel the existing limitations
covering domestic banks and entities registered with the SEC or CFTC.
Two commenters expressed general concerns regarding the
practicality of
[[Page 43589]]
regulating foreign-located MSBs. Both commenters also argued that the
proposed change could create a misperception that foreign-located MSBs
are too risky for financial institutions to provide them with financial
services. Consequently, foreign-located MSBs would find it increasingly
difficult to open accounts with banks unwilling to assume such
potential risks. Although FinCEN acknowledges that regulating foreign-
located MSBs may present challenges, FinCEN believes that there are
meaningful benefits to be derived from such regulation.
Under the final rule, foreign-located MSBs will have the same
reporting and recordkeeping and other requirements as MSBs with a
physical presence in the United States, with respect to their
activities in the United States. Foreign-located MSBs will be subject
to the same civil and criminal penalties as MSBs with a physical
presence in the United States, with respect to their failure to comply
with regulatory requirements.\37\ Foreign-located MSBs will also be
required to designate a person who resides in the United States to
function as an agent to accept service of legal process, including with
respect to BSA compliance.
---------------------------------------------------------------------------
\37\ See 31 CFR 1022.380(e) (formerly 31 CFR103.41(e)), 31 CFR
1010.810-1010.820 (formerly 31 CFR 103.56-103.57), and 31 CFR
1010.840 (formerly 31 CFR 103.59).
---------------------------------------------------------------------------
Limitations
For clarity, FinCEN proposed to add 31 CFR 1010.100(ff)(8) to
create a new section providing limitations to the definition of MSB.
FinCEN proposed to move the first two limitations, excluding (1) Banks
and (2) persons registered or required to register with, and
functionally regulated or examined by, the SEC or the CFTC, from the
definition of MSB at 31 CFR 1010.100(ff) for clarity. Also, as noted
above, foreign banks and certain foreign financial agencies have been
included in the limitations in the final rule to address issues raised
by commenters with regard to foreign-located MSBs. The third
limitation, as discussed above, clarifies the scope of the definition
of MSB, excluding individuals engaging in infrequent activity as an
accommodation. There were no comments on moving the first two
limitations to a separate section. The addition of the third limitation
regarding natural persons and the extension of the first two
limitations to include foreign institutions, while not proposed, do not
alter any obligations but merely clarify the scope of 31 CFR
1010.100(ff).
B. Changes to the Definition of ``Currency Dealer or Exchanger''
FinCEN proposed several changes to 31 CFR 1010.100(ff)(1) (formerly
31 CFR 103.11(uu)(1)), which defines ``currency dealer or exchanger''
as a category of MSB. Comments regarding proposed changes, while noting
a few concerns (discussed below), were largely supportive, and the
final rule adopts all of the proposed changes.
The final rule replaces the phrase ``currency dealer or exchanger''
with ``dealer in foreign exchange.'' Removal of the term ``currency''
from the category's name is designed to clarify that persons meet the
definition by not only exchanging currency, but also by exchanging
other monetary instruments, funds, or other instruments denominated in
currency. Although the BSA uses the term ``currency exchange,'' FinCEN
interprets this language as having been intended to capture the
underlying activity involved in foreign exchange services, which
includes the exchange of instruments other than currency. The proposed
change is consistent with current industry practice, which commonly
involves exchanging instruments other than currency.
The final rule inserts the term ``foreign'' into the category's
name to clarify FinCEN's longstanding policy that any exchange that
occurs in the United States is covered by the definition, even if the
exchange consists of currency, other monetary instruments, funds, or
other instruments denominated exclusively in non-U.S. currencies.
Therefore, if all other requirements are fulfilled, and a person
exchanges currency, other monetary instruments, funds, or other
instruments denominated in one non-U.S. currency for those in another
non-U.S. currency, the person is a dealer in foreign exchange for BSA
purposes. Though such transactions may not involve U.S. dollars, the
potential use of a dealer in foreign exchange in this manner to launder
money, finance terrorism, or carry out other illicit activity
nevertheless would impact the U.S. financial system and should be
subject to regulation. Failure to capture exchanges within the United
States of two foreign currencies (or of payment instruments denominated
in two foreign currencies) would leave a significant and unnecessary
gap in the BSA rules. This change also underscores the international
nature of money laundering and terrorist financing.
By inserting the phrase ``currency, or other monetary instruments,
funds or other instruments'' the final rule clarifies that dealing in
foreign exchange is not limited to the physical exchange of the
currency of one country for the currency of another country. This
language sets forth the media of exchange that trigger the definition
more clearly than in the previous version of the rule. FinCEN's current
rules and existing body of administrative rulings establish that a
person who converts funds denominated in the currency of one country
into funds denominated in the currency of another country is an MSB by
virtue of that activity.\38\ Additionally, the phrase ``other
instruments'' is intended to capture those types of payment instruments
that do not fall precisely into one of the other categories, but
nevertheless are readily recognizable as payment instruments.
---------------------------------------------------------------------------
\38\ See FinCEN Ruling 2008-R003 (Whether a Person That is
Engaged in the Business of Foreign Exchange Risk Management is a
Currency Dealer or Exchanger or Money Transmitter) (May 9, 2008);
FinCEN Ruling 2008-R002 (Whether a Foreign Exchange Dealer is a
Currency Dealer or Exchanger or Money Transmitter) (May 9, 2008);
and 31 CFR 1022.410(b)(6) (formerly 31 CFR 103.37(b)(6)).
---------------------------------------------------------------------------
One commenter expressed concern that the inclusion of ``other
instruments denominated in currency'' in addition to ``currency'' would
cover persons offering foreign exchange transactions that involve
stored value or other products in a manner that would implicate a wide
range of retailers and other entities not generally understood to be
dealers in foreign exchange. FinCEN does not consider this to be the
case however, because payment devices such as debit cards, credit
cards, and stored value do not involve currency exchanges at a point of
sale. The point of sale transaction, from the perspective of the buyer
and the seller (including the U.S.-located merchant hypothesized by the
commenter), is only denominated in U.S. dollars. Any exchange of
currency involved in such a transaction occurs in the back office
processing of the financial institution issuing the device. A
merchant's acceptance of foreign issued stored value to purchase U.S.
issued stored value or U.S. currency, other monetary instruments,
funds, or other instruments does not make that merchant a dealer in
foreign exchange. On the other hand, there are transactions involving
stored value that FinCEN would deem foreign exchange, including
scenarios where a merchant either accepts or pays out foreign currency
in exchange for stored value. For example, a person is a dealer in
foreign exchange if the person:
[[Page 43590]]
(1) Accepts foreign currency, or other monetary instruments, funds, or
other instruments (other than stored value) denominated in foreign
currency, and provides a stored value product in return; or (2) accepts
stored value and provides in return foreign currency, or other monetary
instruments, funds, or other instruments (other than stored value)
denominated in foreign currency.
The final rule includes the phrase ``of one or more other
countries'' \39\ in the definition, underscoring FinCEN's policy that a
person is not a dealer in foreign exchange based on exchanges that
involve currency or instruments denominated exclusively in the currency
of one country. Assuming all other conditions under the BSA rules are
met, a dealer in foreign exchange is a person that converts the
currency, other monetary instruments, funds, or other instruments
denominated in one currency for the currency, other monetary
instruments, funds, or other instruments denominated in a different
currency.
---------------------------------------------------------------------------
\39\ The addition of ``one or more other countries'' is intended
to capture the fact that some foreign currencies are used by
multiple countries. For instance, the Euro is used by member states
of the European Union. Accordingly, a dealer in foreign exchange may
accept funds of one or more other countries in exchange for funds of
one or more other countries.
---------------------------------------------------------------------------
FinCEN received one comment in support of this proposal, and two
comments in opposition. One commenter argued that when a person accepts
instruments denominated in the currency of one country in exchange for
currency of the same country, where the currency is not U.S. dollars,
the exchange may technically require an intermediate transaction
involving U.S. dollars. FinCEN, however, is concerned with the customer
transaction and what currency the customer begins with and ends with,
not any exchanges or recording that take place in the back office of
the merchant. The other commenter opposing the proposal argued that the
activity of exchanging bills within the same currency should be covered
under the MSB rules because certain criminals convert denominations of
cash exclusively within the currency of one country. Both of these
comments, however, in essence propose to include activities within the
category that are not commonly understood to be ``foreign exchange.''
Therefore, FinCEN believes the proposed change better comports with the
common understanding of the foreign exchange business.
The final rule includes the phrase ``for any other person'' to
explicitly reflect FinCEN's longstanding position that a person is not
a dealer in foreign exchange to the extent the person exchanges their
own money on their own behalf.\40\
---------------------------------------------------------------------------
\40\ See, e.g., FinCEN Ruling 2003-9, (Definition of Money
Services Business (Money Transmitter/Currency Dealer or Exchanger))
(October 20, 2003). See also, FinCEN Ruling 2004-3, (Definition of
Money Services Business (Money Transmitter/Currency Dealer or
Exchanger)) (Aug. 17, 2004).
---------------------------------------------------------------------------
The final rule includes the phrase ``whether or not for same-day
delivery'' to account for the potential time difference between the
date on which the exchange rate is agreed and the date of the exchange.
Common settlement terms in foreign exchange markets include: (1) Same-
day or cash--where the parties both agree to an exchange of currency
and conclude the exchange on the same working day; (2) spot--where the
parties agree to an exchange of currency on one date, with the exchange
taking place two working days thereafter; (3) cash forward--where the
parties agree to an exchange of currency on one date, with the exchange
of currency deferred until an agreed-upon date in the future; and (4)
future--where the parties agree to an exchange of currency on one date,
with settlement to occur in an agreed upon delivery period in the
future, typically by payment of an amount reflecting the change in the
foreign currency rate between the time of the agreement and delivery. A
contract for future delivery of currency may also be settled with the
delivery of currency, resulting in the exchange of the currencies
underlying the futures contract.
One commenter expressed concern that this change will create
confusion regarding the $1,000 threshold where the dealer in foreign
exchange is instructed to make multiple disbursements of exchanged
currency over time. The use of the phrase ``whether or not for same day
delivery'' is intended to capture such activity and to make clear that
the date of the payment by the customer to the dealer in foreign
exchange, not the date of any subsequent disbursements, is the date
relevant to the calculation of the $1,000 threshold.
Persons registered with and functionally regulated or examined by
the CFTC including retail foreign exchange dealers are excluded from
the definition of dealer in foreign exchange. As noted above, FinCEN is
consulting with the CFTC regarding retail foreign exchange dealers.\41\
---------------------------------------------------------------------------
\41\ 31 CFR 1010.100(ff) (formerly 31 CFR 103.11(uu)).
---------------------------------------------------------------------------
C. Meaning of the Term ``Check Casher''
FinCEN proposed to amend 31 CFR 1010.100(ff)(2) (formerly 31 CFR
103.11(uu)(2)) to clarify the meaning of the term ``check cashing'' by
splitting the existing regulatory definition into two paragraphs: one
paragraph to define check cashing activity; another paragraph to
exclude certain activity from that definition.
In the Notice, FinCEN proposed several changes to the definition of
``check casher'' to more accurately describe which activities are
covered by or excluded from the definition. Nine commenters addressed
various issues related to the definition of ``check casher.'' Most
commenters generally supported the proposed changes. As a result, the
final rule adopts most of them without change with one exception,
related to stored value, discussed below regarding activities not
subject to the ``check casher'' definition.
``In return'' was added to the definition to more accurately
describe the activity that occurs when cashing a check or redeeming a
monetary instrument. The Uniform Commercial Code references were added
to provide a clear definition of ``check.'' A reference to the
definition of ``monetary instruments'' was also provided. ``Other
instruments'' is intended to capture those types of payment instruments
that do not fall precisely into one of the other categories. The term
``other instruments'' is meant to capture those instruments that are
readily recognizable as payment instruments without capturing goods or
services that may be purchased with a check or monetary instrument.
The definition incorporates the redeeming of monetary instruments
into the definition of ``check casher.'' Given its similarity to check
cashing, it is unnecessary to treat this activity separately from check
cashing.\42\ Accordingly, a person engaged in redeeming monetary
instruments (including traveler's checks and money orders) is a check
casher if it redeems checks for currency or a combination of currency
and monetary or other instruments. This revision does not capture
activity that is tantamount to merely exchanging one monetary
instrument for another monetary or other instrument and accordingly
requires currency to be included in the redeeming. All of the
commenters that addressed this proposal were
[[Page 43591]]
supportive. As a result, the final rule adopts this proposal without
change.
---------------------------------------------------------------------------
\42\ FinCEN does not interpret ``redeem'' to include taking
payment instruments or mechanisms in exchange for goods or services.
See 1999 Rulemaking, 64 FR at 45441-45443.
---------------------------------------------------------------------------
One commenter requested clarification regarding the cashing of
checks or other instruments in exchange for both goods and services and
currency. Entities that accept payment for goods or services with a
check and return more than $1,000 in currency or a combination of
currency and other monetary instruments fall under the definition of
``check casher'' regardless of the value of the goods or services.\43\
---------------------------------------------------------------------------
\43\ See Guidance--Definition of Check Casher and BSA
Requirements (Jan. 2003), http://www.fincen.gov/statutes_regs/guidance/html/definition_of_check_casher.html.
---------------------------------------------------------------------------
The revision also clarifies what activities are not subject to the
``check casher'' definition. The definition, as proposed, exempted
purchases of closed loop stored value with a check, monetary
instrument, or other instrument. One commenter objected to this
limitation, expressing concerns that it was too narrow and that sellers
of open loop stored value in exchange for checks would be ``check
cashers'' for purposes of this rule. As a result, this final rule
exempts the purchase of any type of stored value with a check, monetary
instrument, or other instrument from being an activity subject to the
check casher definition. Stored value related issues generally will be
dealt with in a separate rulemaking, as will be discussed
subsequently.\44\
---------------------------------------------------------------------------
\44\ See the discussion below under ``Meaning of the Term
`Stored Value''' for a discussion of the relationship of this final
rule to the recent Notice of Proposed Rulemaking ``Definitions and
Other Regulations Relating to Prepaid Access,'' 75 FR 36589 (June
28, 2010).
---------------------------------------------------------------------------
The definition also exempts persons who cash checks for the
verified maker of a check otherwise buying goods and services. One
commenter was in favor of this proposal and one opposed. The commenter
opposed to this proposal was concerned that retailers would not be able
to verify the maker of a check. FinCEN does not believe that this will
be a problem, however, because retailers can verify the identity of the
maker of the check in any manner that comports with their internal
policies. Retailers can verify the maker of a check by, for example,
checking a driver's license or other form of identification at the time
of purchase against the name of the maker of the check, already a
common practice of some retailers who accept personal checks. The
Notice asked for comment on other types of low risk check cashing that
should be exempt, such as government or payroll checks. Several
commenters agreed that cashing such low risk checks should be exempt,
but two commenters disagreed, noting that fraud exists in such low risk
checks as well and that such exemptions unnecessarily complicate due
diligence. FinCEN may address other types of low risk check cashing in
a future rulemaking after further study.
Finally, under the previous regulations, redeemers of traveler's
checks and money orders had SAR obligations while check cashers did
not. As these two categories of MSB have been combined, we will seek
comment in a future rulemaking on whether or not to require check
cashers to report suspicious activity to FinCEN under the BSA.
Commenters to this rulemaking were largely in favor of a SAR
requirement for check cashers, though two commenters disagreed, noting
the high number of reports that would be generated and the burden on
check cashing businesses. Issuers of traveler's checks and money orders
will continue to have SAR reporting requirements with respect to the
instruments that they issue.
D. Meaning of the Term ``Issuer or Seller of Traveler's Checks or Money
Orders''
This rule combines prior sections 1010.100(ff)(3) (formerly
103.11(uu)(3)), ``issuer of traveler's checks, money orders, or stored
value,'' and 1010.100(ff)(4) (formerly 103.11(uu)(4)), ``seller or
redeemer of traveler's checks, money orders, or stored value,'' into
new section 1010.100(ff)(3), ``issuer or seller of traveler's checks or
money orders.'' Issuance and sale of traveler's checks and money orders
are similar activities in that they can be covered by a single
definition. A new, separate category relating to stored value, renamed
``Issuer, seller, or redeemer of stored value,'' replaces
1010.100(ff)(4) and is discussed subsequently.\45\
---------------------------------------------------------------------------
\45\ See the discussion below under ``Meaning of the Term
`Stored Value''' for a discussion of the relationship of this final
rule to the recent Notice of Proposed Rulemaking ``Definitions and
Other Regulations Relating to Prepaid Access,'' 75 FR 36589 (June
28, 2010).
---------------------------------------------------------------------------
In the Notice, FinCEN proposed to clarify the definitions regarding
activities related to traveler's checks and money orders by removing
redundant language and specifying how to calculate the activity
threshold for such activities. Five commenters addressed various issues
related to the definition of ``issuer or seller of traveler's checks or
money orders.''
The rule eliminates the ``redeemer'' language that is contained in
the previous definitions. Although the previous rules included those
who ``redeem'' traveler's checks and money orders, traveler's checks
typically are redeemed by their issuers, making a separate redemption
category redundant in such circumstances. Moreover, redeeming a
traveler's check or money order by a non-issuer has been incorporated
into the definition of a check casher.\46\ All of the commenters who
addressed this proposal were supportive. As a result, the final rule
adopts this proposal without change.
---------------------------------------------------------------------------
\46\ FinCEN has never held that a business that provides goods
or services in exchange for payment in the form of money orders or
traveler's checks is an MSB. See 1999 Rulemaking, 64 FR at 45447.
Accordingly, only a business that redeems these instruments for
currency, or exchanges them for a combination of currency and
monetary or other instruments, is considered an MSB, specifically a
check casher, under the rule.
---------------------------------------------------------------------------
The rule defines an ``issuer'' by virtue of the amount at which its
monetary instruments or traveler's checks are sold, as opposed to the
amounts at which they are issued. For example, the amount of the sale
includes the face value of the monetary instruments plus any fees.
Because money orders are not issued in round dollar increments like
traveler's checks, but are rather sold either directly by the issuer or
by its agent to a customer who specifies the exact amount, a business
must look at this activity to determine whether its transactions exceed
the activity threshold per person per day. Similarly, although
traveler's checks are usually issued in large round amounts (e.g., $20,
$50, or $100), the definition is linked to the aggregate amount at
which those checks are sold, either directly by the issuer or at the
agent level, to a customer in a single day. All of the commenters who
addressed this proposal were supportive, though one commenter argued
that issuers and sellers should only be responsible for aggregation
based on the amount for which the instrument is sold to the extent that
they have actual knowledge that the transactions involve the same
person and exceed the threshold. However, changing the requirement from
the face value of the instrument to the amount for which the instrument
is sold does not change the aggregation requirement. Businesses have
the same aggregation requirements as under the prior rule, only the
determination of the amount has changed. The final rule adopts this
proposal without change.
E. Meaning of the Term ``Stored Value''
Under the prior rules, FinCEN addressed traveler's checks, money
orders, and stored value under two separate definitions of providers of
those products: (1) Issuers and (2) sellers or redeemers. The Notice
proposed to group providers of stored
[[Page 43592]]
value together, separately from issuers or sellers of traveler's checks
and money orders. All of the commenters who addressed this proposal
were supportive. The final rule adopts this proposal without change.
Several commenters noted that stored value is empirically similar
to activity engaged in by persons defined as ``money transmitters,''
but the mechanisms for directing that the money be transmitted are
different. Most commenters on this issue recommended treating stored
value as a separate category of MSB. FinCEN agrees, and is therefore
treating stored value as a distinct MSB activity, keeping it separate
from the category established for money transmitters, while at the same
time acknowledging that stored value should have more comprehensive
anti-money laundering regulation.
In 1999, FinCEN issued a final rulemaking deferring certain
requirements for the stored value industry based on the complexity of
the industry and the desire to avoid unintended consequences with
respect to an industry then in its infancy. In 2009, Congress passed
the Credit CARD Act, which required FinCEN to issue regulations
relating to stored value. On June 28, 2010, FinCEN issued Notice of
Proposed Rule Making, Amendment to the Bank Secrecy Act Regulations--
Definitions and Other Regulations Relating to Prepaid Access.\47\ The
proposed changes to stored value are generally not reflected in this
rulemaking, but will be addressed in a separate Prepaid Access rule.
---------------------------------------------------------------------------
\47\ See 75 FR 36589.
---------------------------------------------------------------------------
F. Meaning of the Term ``Money Transmitter''
This rule revises the regulation interpreting 31 U.S.C.
5312(a)(2)(R), which includes money transmitters within the definition
of ``financial institution'' under the BSA. The prior regulation
contained a facts and circumstances limitation that excluded from the
``money transmitter'' definition persons that are engaged in the
business of money transmission as an integral part of the execution and
settlement of the transaction. The ``integral'' exception includes
entities that could not engage in their businesses without engaging in
the transmission of funds. This rule clarifies the language of these
limitations.
This rule's definition of ``money transmitter'' is ``a person who
provides money transmission services.'' This language is consistent
with existing language in the BSA.\48\ The definition removes the
phrase ``engages as a business'' as FinCEN continues to regulate an MSB
by its activity and the context in which the activity occurs and not by
its status. The removal of ``engages as a business'' does not broaden
the regulation beyond its present scope.\49\ The commenters were
generally supportive regarding this change, though one commenter argued
that because the statute used the phrase ``engages as a business'' the
regulation also must use the same phrase. The change to the regulation,
however, does not alter the scope or meaning of the rule; the change
only clarifies the rule's application. As a result, it is unnecessary
to replicate the phrase and the final rule adopts this proposal without
change.
---------------------------------------------------------------------------
\48\ 31 U.S.C. 5330 uses the language ``any business that
provides * * * money transmitting or remittance services.''
\49\ FinCEN notes that ``money services business'' is defined as
``[a] person wherever located doing business. * * *'' (emphasis
added). 31 CFR 1010.100(ff).
---------------------------------------------------------------------------
The definition also removes the phrase ``whether or not licensed or
required to be licensed.'' While this phrase reflects language in 31
U.S.C. 5312, FinCEN finds the phrase to be unnecessary because it does
not add substantive value to the meaning of money transmitter.
The regulatory definition of ``money transmission services''
includes the phrase ``or other value that substitutes for currency'' to
state that businesses that accept stored value or currency equivalents
as a funding source and transmit that value are providing money
transmission services. FinCEN has modified the final rule so that both
references to ``value'' in the regulation are expressed as ``value that
substitutes for currency'' to maintain consistency in the rule's
language. The word ``such'' has also been removed from the final rule
to eliminate the possibility of any misinterpretation that a person
must receive and transmit the exact same currency, funds, or other
value to be covered under the definition of ``money transmitter.''
By including the transmission of value, the prior and current
regulatory definitions of ``money transmitter'' are worded to include
persons engaged in informal value transfer systems, including
hawalas.\50\ Such activity is money transmission, and the persons
engaged in that activity are money transmitters subject to the
requirements of the BSA.\51\ To further emphasize the rule's
applicability to these money transmitters, FinCEN has modified the
final rule to include a specific reference to informal value transfer
systems as a means of money transmission.
---------------------------------------------------------------------------
\50\ ``An `informal value transfer system' refers to any system,
mechanism, or network of people that receives money for the purpose
of making the funds or an equivalent value payable to a third party
in another geographic location, whether or not in the same form.''
FinCEN Advisory Issue 33 (Informal Value Transfer Systems) (March
2003). ``Hawala'' is one name for a type of informal value transfer
system that operates outside of, or parallel to, ``traditional''
banking or financial channels. See generally FinCEN Advisory FIN-
2010-A011 (Informal Value Transfer Systems) (September 2010).
\51\ Id.
---------------------------------------------------------------------------
The regulatory definition of ``money transmission services'' also
adds the phrase ``to another location or person.'' Although this phrase
is not in the statutory definition of money transmitting service, it is
implicit in the statutory definition's use of the word
``transmitting.'' Transactions involving the acceptance of currency
from one person at one location and the return of that currency to that
same person at the same location would not be considered a money
transmission service. The addition of the phrase ``to another location
or person,'' explicitly conveys this interpretation.
One commenter suggested that the phrase ``the acceptance of
currency * * * from one person AND the transmission * * * to another
location or person,'' indicated that acceptance by the money
transmitter of funds had to precede any transmission to satisfy the
definition. If this were the case, however, it would be easy--
particularly in an electronic environment--to circumvent this
definition by the simple expedient of transmitting funds a fraction of
a second before accepting them. The activity of money transmitting, for
the purposes of FinCEN regulations, involves both acceptance and
transmission, but not necessarily in that order. FinCEN is concerned
about the ability to circumvent regulation if it were to require that
the acceptance of currency must always precede transmission. The final
rule adopts the phrase without change.
The phrase ``any means'' is defined in the prior rule to include
transmission ``through a financial agency or institution; a Federal
Reserve Bank or other facility of one or more Federal Reserve Banks,
the Board of Governors of the Federal Reserve System, or both; or an
electronic funds transfer network.'' The final rule moves the phrase
``any means'' to a different part of the definition only to increase
reader comprehension, and the change in placement of the phrase has no
substantive effect on the meaning of the definition. The definition of
``any
[[Page 43593]]
means'' in the final rule also includes a specific reference to
informal value transfer systems. One commenter suggested adding the
phrase ``but is not limited to'' following ```Any means' includes.''
While FinCEN believes that this clarification is not technically
necessary, as ``any means,'' by its own meaning, encompasses more than
the listed examples in the regulation, we will adopt the change to
avoid possible confusion.
The prior regulations also include in the definition, ``(B) Any
other person engaged as a business in the transfer of funds.'' \52\
This phrase was removed from the definition in the Notice. The final
rule, however, includes this phrase to minimize any possible confusion
regarding whether there has been a change to the scope of the
definition of ``money transmitter.'' The scope of the definition of
``money transmitter'' in this final rule is the same as that of the
prior regulatory definition.
---------------------------------------------------------------------------
\52\ 31 CFR 1010.100(ff)(5)(i)(b) (formerly 31 CFR
103.11(uu)(5)(i)(b)).
---------------------------------------------------------------------------
As mentioned above, the prior regulation contained limitations
regarding the definition of a ``money transmitter.'' \53\ The Notice
also contained additional limitations that incorporate existing
interpretations of the prior limitation by adding explicit language
reflecting policy developed through administrative ruling letters and
guidance. The limitation language reads, ``whether a person is a money
transmitter as described in this section is a matter of facts and
circumstances. The term `money transmitter' shall not include a person
that only * * *'' engages in the following activity:
---------------------------------------------------------------------------
\53\ 31 CFR 1010.100(ff)(5)(ii) (formerly 31 CFR
103.11(uu)(5)(ii)).
---------------------------------------------------------------------------
``(A) Provides the delivery, communication, or network access
services used by a money transmitter to support money transmission
services. * * *'' Institutions that are used by money transmitters
solely for the purpose of providing a medium of communication or
transportation of information between money services businesses and
their agents, financial institutions, or service providers are not
deemed ``money transmitters.'' No commenters addressed this issue, and
the final rule adopts this proposal without change.
``(B) Acts as a payment processor to facilitate the purchase or
payment of a bill for a good or service through a clearance and
settlement system by agreement with the creditor or seller. * * *''
Although payment processors may provide a money transmission service,
the service is ancillary to their primary business of coordinating
payments either from a debtor to a creditor or, if operating at the
point of sale, from a purchaser to a merchant.\54\ A payment processor
could not provide the primary service of coordination without providing
ancillary money transmission services, but because the money
transmission services are ancillary, and because they are generally low
risk, it is appropriate for entities engaged in this activity to be
excluded from the definition. Note, however, that this limitation only
applies to transmission services by payment processors on behalf of the
creditor or seller and not the debtor or buyer. A contractual agreement
for transmission services between the creditor or seller and the money
transmitter is a relatively controlled flow of money that poses little
money laundering risk, provided that the funds are transmitted only to
the creditor or seller with whom the payment processor has contracted
and not to another location or person. The final rule adopts this
proposal with only a change of punctuation needed for clarity.
---------------------------------------------------------------------------
\54\ FinCEN Ruling 2003-R008 (Definition of Money Transmitter)
(Nov. 19, 2003).
---------------------------------------------------------------------------
``(C) Operates a clearance and settlement system or otherwise acts
as an intermediary solely between BSA regulated institutions. This
includes but would not be limited to the Fedwire system, electronic
funds transfer networks, certain registered clearing agencies regulated
by the SEC, and derivatives clearing organizations, or other
clearinghouse arrangements established by a financial agency or
institution. * * *'' Persons who solely provide a clearance and
settlement system or act as intermediaries between BSA regulated
institutions and do not provide other types of money transmission
services are mere instrumentalities that the financial institutions use
to process their transfers. Therefore, these instrumentalities, such as
the credit card networks, are not included in the definition of ``money
transmitter.'' The final rule adopts this proposal without change.
``(D) Physically transports currency, other monetary instruments,
other commercial paper, or other value that substitutes for currency as
a person engaged in such business from one person to the same person at
another location or to an account belonging to the same person at a
financial institution, provided that the person engaged in physical
transportation has no more than a custodial interest in the currency,
other monetary instruments, other commercial papers, or other value at
any point during the transportation.''
This limitation encompasses past armored car rulings. The final
rule slightly modifies the proposed language to make this connection
explicit, by including a specific reference to armored cars, and by
limiting the applicability of the limitation to persons that, like the
armored car companies that requested rulings from FinCEN, were
primarily engaged in providing armored car services. FinCEN previously
ruled that although armored car services may fall within the definition
of a ``money transmitter,'' to the extent that they transport currency
on behalf of BSA regulated institutions, they should not be treated as
money transmitters.\55\ FinCEN additionally determined that an armored
car is not a money transmitter when it moves currency on behalf of a
private party to an account or another location of the same party
without taking a financial stake in the transaction.\56\
---------------------------------------------------------------------------
\55\ FinCEN Ruling 2004-R003 (Definition of Money Services
Business) (Aug. 17, 2004). See also FinCEN 2003-R007 (Definition of
Money Transmitter) (Oct. 28, 2003).
\56\ Id. In such instance, the armored car is merely a conduit
or vehicle and has no control over the financial transaction.
---------------------------------------------------------------------------
To take advantage of this limitation, the person engaged in
physical transportation cannot have more than a custodial interest in
what is being moved at any point during the transportation.\57\ The
exclusion does not apply to such a person if it deposits currency or
monetary instruments that it is transporting into its own operating
account at a bank, regardless of the identity of the ultimate recipient
of the funds represented by the currency or monetary instruments.
---------------------------------------------------------------------------
\57\ Our rulings referred to the lack of a ``stake in the
transaction'' in establishing the standard for the armored car
exclusion; we have clarified our wording to ``no more than a
custodial interest'' to qualify for the exclusion.
---------------------------------------------------------------------------
One commenter suggested adding ``a bailment'' as an example of ``no
more than a custodial interest.'' FinCEN does not believe that it is
necessary to add this example in the text of the regulation, but does
agree that such a status may not confer more than a custodial interest.
Another commenter suggested clarifying ``custodial interest'' by adding
the phrase ``without beneficial ownership.'' While the addition of
``without beneficial ownership'' might clarify some cases, FinCEN
believes that it could lead to confusion given its meaning and use in
other money laundering contexts. Our intent with ``custodial interest''
is to convey that such an entity has no economic stake (beyond payment
for its
[[Page 43594]]
transportation services) in any transaction involving currency, value
that substitutes for currency, or other monetary instruments being
transported. Based on that interpretation of the phrase, FinCEN adopts
the proposed language.
This exclusion applies to transport initiated by any person other
than certain BSA-regulated institutions. Specifically, when transport
is initiated by a bank, a broker-dealer or other SEC-regulated
financial institution, or a futures commission merchant or other CFTC-
regulated institution, a transport business such as an armored car is
not a money transmitter, regardless of whether the transport is to
another location or person.
Except as indicated above, the final rule adopts this proposal
without change.
``(E) Provides stored value.'' A person who provides stored value
is also excluded from the definition of ``money transmitter,'' whether
the stored value is open or closed loop. Furthermore, by ``provides''
FinCEN intends that both entities involved in the sale and management
of stored value programs be excluded. For example, a department store
that offers gift cards that only may be used at that department store,
a convenience store that sells network branded cards that may be used
anywhere like a credit card, or a program manager who organizes a
stored value program and facilitates loading the stored value device
are not subject to the MSB rules as money transmitters.
FinCEN previously determined that a person solely issuing, selling,
or redeeming closed loop stored value is not an ``issuer, seller or
redeemer of stored value'' and was therefore not subject to BSA
regulation as an MSB under that MSB category.\58\ This limited
exclusion, however, did not imply that all persons who provided open
loop stored value were money transmitters. In part, this is because a
significant amount of the open loop stored value issued within the
United States is issued by or through a depository institution, a
category of financial institution that expressly is excluded from the
definition of MSB by statute and regulation.\59\ The Notice proposed
only excluding ``providers of closed loop stored value'' from the
definition. In light of the Prepaid Access NPRM, which addresses stored
value issues as a separate category of MSB, FinCEN is excluding stored
value in any form from being considered a form of money transmission.
---------------------------------------------------------------------------
\58\ See FinCEN Ruling 2003-R004 (Definition of Money
Transmitter/Stored Value (Gift Certificates/Gift Cards)) (Aug. 15,
2003) (FinCEN does not currently interpret the definition of stored
value to include closed system products such as a mall-wide gift
card program).
\59\ See 31 U.S.C. 5330(d)(1)(C); 31 CFR 1010.100(ff) (formerly
31 CFR 103.11(uu)).
---------------------------------------------------------------------------
Many of the commenters to the Notice regarding stored value were in
favor of treating open and closed loop stored value differently under
the regulations. While FinCEN agrees that the two forms of stored value
have different risks and vulnerabilities, we believe it is appropriate
to exclude both forms from the definition of ``money transmission.''
These issues are further addressed by the Prepaid Access NPRM.
Additionally, one commenter noted that the distinctions between open
and closed loop stored value are being removed as some closed loop
systems can now be international, involve multiple retailers, and be
reloadable. The commenter argued that the distinction should be based
on whether the stored value product has cash access or not. FinCEN
agrees that cash access is one aspect of a stored value product that is
significant in assessing the product's risk, along with reloadability,
the breadth of retailer acceptance of the product, and whether the
product can be used internationally. These issues were addressed in the
Prepaid Access NPRM.\60\ The final rule adopts the above described
expanded limitation to the definition of ``money transmitter.''
---------------------------------------------------------------------------
\60\ See 75 FR 36589, 36599.
---------------------------------------------------------------------------
``(F) Accepts and transmits funds only integral to the sale of
goods or the provision of services, other than money transmission
services, by the person who is accepting and transmitting the funds.''
Similar to circumstance (B), persons that sell goods or provide
services other than money transmission services, and only transmit
funds as an integral part of that sale of goods or provision of
services, are not money transmitters. For example, brokering the sale
of securities, commodity contracts, or similar instruments is not money
transmission notwithstanding the fact that the person brokering the
sale may move funds back and forth between the buyer and seller to
effect the transaction. Similarly, this limitation would apply to a
debt management company that made payments to creditors as the conduit
for a negotiated schedule of payments from the debtor to its
creditors.\61\ The person who is accepting and transmitting the funds
is offering a service other than money transmission services which
could not be provided without transmitting funds. No commenters
addressed this issue and the final rule adopts this proposal without
change.
---------------------------------------------------------------------------
\61\ See FinCEN Ruling 2004-R004 (Definition of Money Services
Business) (Nov. 24, 2004).
---------------------------------------------------------------------------
G. Registration and Service of Legal Process
There currently is no provision within 31 CFR Chapter X that
requires foreign-located MSBs to designate an agent to accept service
of legal process in the United States. To enhance the ability of U.S.
law enforcement and regulatory agencies to reach these MSB registrants,
FinCEN proposed to add the following language to 31 CFR 1022.380
(formerly 31 CFR 103.41): ``(a)(2) Foreign-located Money Services
Business. Each foreign-located person engaged in activities in the
United States as a money services business shall designate the name and
address of a person who resides in the United States and is authorized,
and has agreed, to be an agent to accept service of legal process with
respect to compliance with this part and shall identify the address of
the location within the United States for records pertaining to
paragraph (b)(1)(iii) of this section.'' FinCEN received three
supportive comments on this issue. Accordingly, FinCEN adopts the
proposal without change, except insofar as the language was changed
slightly to reflect the corresponding language in the definition of
MSB, which was changed from the Notice, discussed above.
Compliance with the designation of an agent for service of process
provision, however, will require a change to FinCEN Form 107,
Registration of Money Services Business. The current form does not
contain a field in which such an agent can be designated. FinCEN will
soon publish a new proposed form for notice and comment which makes a
number of conforming changes to reflect this final rule, including
adding a checkbox to indicate whether an MSB is foreign located and
allowing for designation of an agent for service of process.
Accordingly, this rule provides that compliance with 31 CFR 1022.380 is
not required until six months after the date of publication of this
final rule in the Federal Register, by which time the revised FinCEN
Form 107, Registration of Money Services Business, will be final and
available.
V. Regulatory Flexibility Act
Pursuant to the Regulatory Flexibility Act (RFA) (5 U.S.C. 601 et
seq.), FinCEN certifies that these regulation revisions will not have a
significant economic impact on a substantial number of small entities.
Because most MSBs are small
[[Page 43595]]
entities, this rule will affect a substantial number of small entities.
Although a substantial number of small entities are affected, the
economic impact of this rulemaking is not significant. This rulemaking
imposes no new recordkeeping or reporting requirements on MSBs, with
the possible exception of foreign-located MSBs. In fact, some
commenters noted that this rule will have a modest reduction in
reporting burden.
In large part, the rule updates the MSB definitions to integrate
past guidance and rulings into the regulatory text. Incorporating
existing interpretations into the regulatory text would have no impact
on small entities that have been aware of these interpretations for
years. Even if an MSB was unfamiliar with the existing guidance and
rulings, these regulatory changes will not impose a significant
economic impact. First, this final rule is limited to revising the MSB
definitions to make clearer what activities subject a person to the BSA
rules pertaining to MSBs. This change provides additional certainty
without adding additional burden. Second, as previously stated, the
rule clarifies that certain foreign-located MSBs with a U.S. presence,
such as having U.S. customers or recipients, are subject to the BSA
rules. Finally, the rule makes minimal nomenclature changes with
respect to certain MSB categories to help clarify distinctions.
In addition, the rulemaking combines all of stored value into one
category, without substantively changing the existing definition. This
structural change will not affect small entities. Accordingly, a
regulatory flexibility analysis is not required.
VI. Paperwork Reduction Act Notices
The collection of information contained in this final rule has been
approved by the Office of Management and Budget in accordance with the
Paperwork Reduction Act of 1995 (44 U.S.C. 3507(d)) under control
numbers 1506-0004, 1506-0013, 1506-0015, 1506-0020, 1506-0052. Based on
comments received, the clarification of the definitions in 31 CFR
1010.100(ff) (formerly 31 CFR 103.11(uu)) will likely reduce the
reporting burden for most MSBs. Certain foreign-located MSBs conducting
business in the United States may see an increase in their obligation
to collect and report information. However, any such potential must be
weighed against the reduction in burden to be achieved by clarifying
the exceptions we have made explicit regarding the type of business
activity that would make a business an MSB. With the exception of
foreign-located MSBs, this rulemaking does not impose any new reporting
or recordkeeping requirements. Instead, it merely clarifies the current
scope of the existing MSB definitions and related rules. To the extent
that we have eliminated any uncertainty or ambiguities with this rule
and to the extent that we have narrowed the scope of businesses subject
to reporting or recordkeeping requirements, we have not in the
aggregate expanded, and may in fact have in the aggregate reduced,
regulatory obligations.\62\
---------------------------------------------------------------------------
\62\ This amendment to 31 CFR 1010.100 (formerly 31 CFR 103.11)
and 31 CFR 1022.380 (formerly 31 CFR 103.41) makes explicit that
certain foreign-located persons that conduct MSB operations in the
United States must register with FinCEN as an MSB and will be
subject to certain BSA recordkeeping and reporting requirements.
---------------------------------------------------------------------------
Description of Affected Financial Institutions: Money Services
Businesses as defined in 31 CFR 1010.100(ff) (formerly 31 CFR
103.11(uu)).
Estimated Number of Affected Financial Institutions: 42,000.
Estimated Average Annual Burden Hours per Affected Financial
Institution: The estimated average decrease in burden associated with
the recordkeeping requirements in this final rule is one hour per
affected financial institution.
Estimated Total Annual Burden: Minus 42,000 hours from OMB control
number 1506-0052.
In the Notice, FinCEN invited comment on: Whether the proposed
collection of information was necessary for the proper performance of
FinCEN's mission; the accuracy of the estimated burden associated with
the proposed collection of information; how the quality, utility, and
clarity of the information to be collected may be enhanced; and how the
burden of complying with the proposed collection of information may be
minimized, including through the application of automated collection
techniques or other forms of information technology.\63\ Commenters did
not address these issues specifically. However, commenters stated that
clarifying the definitions will reduce the reporting burden on MSBs.
---------------------------------------------------------------------------
\63\ Amendment to Bank Secrecy Act Regulations; Definitions and
Other Regulations Relating to Money Services Businesses, 74 FR 22129
(May 12, 2009).
---------------------------------------------------------------------------
Under the Paperwork Reduction Act, an agency may not conduct or
sponsor a collection of information, and a person is not required to
respond to a collection of information, unless it displays a valid OMB
control number.
VII. Executive Order 12866 and Executive Order 13563
Executive Orders 12866 and 13563 direct agencies to assess all
costs and benefits of available regulatory alternatives and, if
regulation is necessary, to select regulatory approaches that maximize
net benefits (including potential economic, environmental, public
health and safety effects, distributive impacts, and equity). Executive
Order 13563 emphasizes the importance of quantifying both costs and
benefits, of reducing costs, of harmonizing rules, and of promoting
flexibility. This rule has been designated a ``significant regulatory
action'' although not economically significant, under section 3(f) of
Executive Order 12866. Accordingly, the rule has been reviewed by the
Office of Management and Budget.
VIII. Unfunded Mandates Act of 1995 Statement
Section 202 of the Unfunded Mandates Reform Act of 1995 (``Unfunded
Mandates Act''), Public Law 104-4 (March 22, 1995), requires that an
agency prepare a budgetary impact statement before promulgating a rule
that may result in expenditure by state, local, and tribal governments,
in the aggregate, or by the private sector, of $100 million or more in
any one year. If a budgetary impact statement is required, section 202
of the Unfunded Mandates Act also requires an agency to identify and
consider a reasonable number of regulatory alternatives before
promulgating a rule. FinCEN has determined that it is not required to
prepare a written statement under section 202 and has concluded that on
balance this rulemaking provides the most cost-effective and least
burdensome alternative to achieve the objectives of the rule.
List of Subjects in 31 CFR Parts 1010, 1021 and 1022
Authority delegations (Government agencies), Banks and banking,
Currency, Investigations, Law enforcement, Reporting and recordkeeping
requirements.
Authority and Issuance
For the reasons set forth above, FinCEN is amending 31 CFR Parts
1010, 1021 and 1022 as follows:
PART 1010--GENERAL PROVISIONS
0
1. The authority citation for part 1010 continues to read as follows:
Authority: 12 U.S.C. 1829b and 1951-1959; 31 U.S.C. 5311-5314,
5316-5332; title
[[Page 43596]]
III, secs. 311, 312, 313, 314, 319, 326, 352, Pub. L. 107-56, 115
Stat. 307.
0
2. Section 1010.100 is amended by:
0
a. Revising paragraph (ff) introductory text;
0
b. Revising paragraph (ff)(1);
0
c. Revising paragraph (ff)(2);
0
d. Revising paragraph (ff)(3);
0
e. Revising paragraph (ff)(4);
0
f. Revising paragraph (ff)(5);
0
g. Adding and reserving paragraph (ff)(7); and
0
h. Adding paragraph (ff)(8) as follows.
Sec. 1010.100 General definitions.
* * * * *
(ff) Money services business. A person wherever located doing
business, whether or not on a regular basis or as an organized or
licensed business concern, wholly or in substantial part within the
United States, in one or more of the capacities listed in paragraphs
(ff)(1) through (ff)(6) of this section. This includes but is not
limited to maintenance of any agent, agency, branch, or office within
the United States.
(1) Dealer in foreign exchange. A person that accepts the currency,
or other monetary instruments, funds, or other instruments denominated
in the currency, of one or more countries in exchange for the currency,
or other monetary instruments, funds, or other instruments denominated
in the currency, of one or more other countries in an amount greater
than $1,000 for any other person on any day in one or more
transactions, whether or not for same-day delivery.
(2) Check casher--(i) In general. A person that accepts checks (as
defined in the Uniform Commercial Code), or monetary instruments (as
defined at Sec. 1010.100(dd)(1)(ii), (iii), (iv), and (v)) in return
for currency or a combination of currency and other monetary
instruments or other instruments, in an amount greater than $1,000 for
any person on any day in one or more transactions.
(ii) Facts and circumstances; Limitations. Whether a person is a
check casher as described in this section is a matter of facts and
circumstances. The term ``check casher'' shall not include:
(A) A person that sells stored value in exchange for a check (as
defined in the Uniform Commercial Code), monetary instrument or other
instrument;
(B) A person that solely accepts monetary instruments as payment
for goods or services other than check cashing services;
(C) A person that engages in check cashing for the verified maker
of the check who is a customer otherwise buying goods and services;
(D) A person that redeems its own checks; or
(E) A person that only holds a customer's check as collateral for
repayment by the customer of a loan.
(3) Issuer or seller of traveler's checks or money orders. A person
that
(i) Issues traveler's checks or money orders that are sold in an
amount greater than $1,000 to any person on any day in one or more
transactions; or
(ii) Sells traveler's checks or money orders in an amount greater
than $1,000 to any person on any day in one or more transactions.
(4) Issuer, seller, or redeemer of stored value. A person that
(i) Issues stored value (other than a person that does not issue
such stored value in an amount greater than $1,000 to any person on any
day in one or more transactions); or
(ii) Sells or redeems stored value (other than a person that does
not sell or redeem stored value for an amount greater than $1,000 from
any person on any day in one or more transactions).
(5) Money transmitter--(i) In general.
(A) A person that provides money transmission services. The term
``money transmission services'' means the acceptance of currency,
funds, or other value that substitutes for currency from one person and
the transmission of currency, funds, or other value that substitutes
for currency to another location or person by any means. ``Any means''
includes, but is not limited to, through a financial agency or
institution; a Federal Reserve Bank or other facility of one or more
Federal Reserve Banks, the Board of Governors of the Federal Reserve
System, or both; an electronic funds transfer network; or an informal
value transfer system; or
(B) Any other person engaged in the transfer of funds.
(ii) Facts and circumstances; Limitations. Whether a person is a
money transmitter as described in this section is a matter of facts and
circumstances. The term ``money transmitter'' shall not include a
person that only:
(A) Provides the delivery, communication, or network access
services used by a money transmitter to support money transmission
services;
(B) Acts as a payment processor to facilitate the purchase of, or
payment of a bill for, a good or service through a clearance and
settlement system by agreement with the creditor or seller;
(C) Operates a clearance and settlement system or otherwise acts as
an intermediary solely between BSA regulated institutions. This
includes but is not limited to the Fedwire system, electronic funds
transfer networks, certain registered clearing agencies regulated by
the Securities and Exchange Commission (``SEC''), and derivatives
clearing organizations, or other clearinghouse arrangements established
by a financial agency or institution;
(D) Physically transports currency, other monetary instruments,
other commercial paper, or other value that substitutes for currency as
a person primarily engaged in such business, such as an armored car,
from one person to the same person at another location or to an account
belonging to the same person at a financial institution, provided that
the person engaged in physical transportation has no more than a
custodial interest in the currency, other monetary instruments, other
commercial paper, or other value at any point during the
transportation;
(E) Provides stored value; or
(F) Accepts and transmits funds only integral to the sale of goods
or the provision of services, other than money transmission services,
by the person who is accepting and transmitting the funds.
* * * * *
(7) [Reserved].
(8) Limitation. For the purposes of this section, the term ``money
services business'' shall not include:
(i) A bank or foreign bank;
(ii) A person registered with, and functionally regulated or
examined by, the SEC or the CFTC, or a foreign financial agency that
engages in financial activities that, if conducted in the United
States, would require the foreign financial agency to be registered
with the SEC or CFTC; or
(iii) A natural person who engages in an activity identified in
paragraphs (ff)(1) through (ff)(5) of this section on an infrequent
basis and not for gain or profit.
0
3. Section 1010.605 is amended by:
0
a. Revising paragraph (f)(1)(iv) introductory text;
0
b. Revising paragraph (f)(1)(iv)(A); and
0
c. Revising paragraph (f)(2), to read as follows.
Sec. 1010.605 Definitions.
* * * * *
(f) * * *
(1) * * *
(iv) Any person organized under foreign law (other than a branch or
office of such person in the United States) that is engaged in the
business of, and is readily identifiable as:
(A) A dealer in foreign exchange; or
* * * * *
(2) For purposes of paragraph (f)(1)(iv) of this section, a person
is not ``engaged
[[Page 43597]]
in the business'' of a dealer in foreign exchange or a money
transmitter if such transactions are merely incidental to the person's
business.
* * * * *
PART 1021--RULES FOR CASINOS AND CARD CLUBS
0
4. The authority citation for part 1021 continues to read as follows:
Authority: 12 U.S.C. 1829b and 1951-1959; 31 U.S.C. 5311-5314
and 5316-5332; title III, sec. 314, Public 107-56, 115 Stat. 307.
0
5. Section 1021.311 is amended by revising paragraph (c)(1) to read as
follows:
Sec. 1021.311 Filing obligations.
* * * * *
(c) * * *
(1) Transactions between a casino and a dealer in foreign exchange,
or between a casino and a check casher, as those terms are defined in
Sec. 1010.100(ff) of this Chapter, so long as such transactions are
conducted pursuant to a contractual or other arrangement with a casino
covering the financial services in paragraphs (a)(8), (b)(7), and
(b)(8) of this section;
* * * * *
PART 1022--RULES FOR MONEY SERVICES BUSINESSES
0
6. The authority citation for part 1022 continues to read as follows:
Authority: 12 U.S.C. 1829b and 1951-1959; 31 U.S.C. 5311-5314
and 5316-5332; title III, sec. 314, Public Law 107-56, 115 Stat.
307.
0
7. Section 1022.210 is amended by revising the first sentence of
paragraph (d)(1)(iii) to read as follows:
Sec. 1022.210 Anti-money laundering programs for money services
businesses.
* * * * *
(d) * * *
(1) * * *
(iii) A person that is a money services business solely because it
is an agent for another money services business as set forth in Sec.
1022.380(a)(3), and the money services business for which it serves as
agent, may by agreement allocate between them responsibility for
development of policies, procedures, and internal controls required by
this paragraph (d)(1). * * *
* * * * *
0
8. Section 1022.380 is amended by:
0
a. Revising the first sentence of paragraph (a)(1);
0
b. Redesignating paragraphs (a)(2) and (a)(3) as paragraphs (a)(3) and
(a)(4), respectively;
0
c. Adding a new paragraph (a)(2); and
0
d. Revising paragraph (b)(3), to read as follows.
Sec. 1022.380 Registration of money services businesses.
(a) Registration requirement--(1) In general. Except as provided in
paragraph (a)(3) of this section, relating to agents, each money
services business (whether or not licensed as a money services business
by any State) must register with the Department of the Treasury and, as
part of that registration, maintain a list of agents as required by 31
U.S.C. 5330 and this section. * * *
(2) Foreign-located Money Services Business. Each foreign-located
person doing business, whether or not on a regular basis or as an
organized or licensed business concern, in the United States as a money
services business shall designate the name and address of a person who
resides in the United States and is authorized, and has agreed, to be
an agent to accept service of legal process with respect to compliance
with this chapter, and shall identify the address of the location
within the United States for records pertaining to paragraph
(b)(1)(iii) of this section.
* * * * *
(b) * * *
(3) Due date. The registration form for the initial registration
period must be filed on or before the end of the 180-day period
beginning on the day following the date the business is established.
The registration form for a renewal period must be filed on or before
the last day of the calendar year preceding the renewal period.
* * * * *
0
9. Section 1022.410 is amended by:
0
a. Revising the heading of the section;
0
b. Revising paragraph (a)(1) introductory text;
0
c. Revising paragraph (a)(2);
0
d. Revising paragraph (b) introductory text; and
0
e. Revising paragraph (b)(9), to read as follows.
Sec. 1022.410 Additional records to be made and retained by dealers
in foreign exchange.
(a)(1) After July 7, 1987, each dealer in foreign exchange shall
secure and maintain a record of the taxpayer identification number of
each person for whom a transaction account is opened or a line of
credit is extended within 30 days after such account is opened or
credit line extended. Where a person is a non-resident alien, the
dealer in foreign exchange shall also record the person's passport
number or a description of some other government document used to
verify his identity. Where the account or credit line is in the names
of two or more persons, the dealer in foreign exchange shall secure the
taxpayer identification number of a person having a financial interest
in the account or credit line. In the event that a dealer in foreign
exchange has been unable to secure the identification required within
the 30-day period specified, it shall nevertheless not be deemed to be
in violation of this section if:
* * * * *
(2) The 30-day period provided for in paragraph (a)(1) of this
section shall be extended where the person opening the account or
credit line has applied for a taxpayer identification or social
security number on Form SS-4 or SS-5, until such time as the person
maintaining the account or credit line has had a reasonable opportunity
to secure such number and furnish it to the dealer in foreign exchange.
* * * * *
(b) Each dealer in foreign exchange shall retain either the
original or a microfilm or other copy or reproduction of each of the
following:
* * * * *
(9) A system of books and records that will enable the dealer in
foreign exchange to prepare an accurate balance sheet and income
statement.
* * * * *
Dated: July 14, 2011.
James H. Freis, Jr.,
Director, Financial Crimes Enforcement Network.
[FR Doc. 2011-18309 Filed 7-20-11; 8:45 am]
BILLING CODE 4810-02-P