The Nexus Between Money Laundering and Terrorist Financing
Definition of Money Laundering
Process of Money Laundering
1. Placement: This is the initial stage, where the illicit money is introduced into the financial system. At this stage, the money is often in the form of cash. The goal of this step is to create distance between money and its criminal source. Here it includes:
- Structuring, where a small amount of money is deposited into banks
- Transferring funds through a cash-intensive business
- Buying foreign exchange in cash with illicit cash.
2. Layering: This is the second stage, where the money is layered in a way that makes it difficult to trace the origin of funds. Here it includes:
- Investing funds in real estate and high-value precious metals such as gold and silver
- Moving funds with shell companies and offshore companies
- Converting funds into different currencies and financial instruments.
3. Integration: This is the last and final stage, where the cleaned money is reintroduced into the mainstream economy as legally earned money or legitimate money. Here it includes:
- Use the funds in buying goods and services without attracting the attention and scrutiny of authorities
- Investing funds in high-value assets
- Building business relationships and investing in such businesses.
Background of Anti-Money Laundering Legislation in the United Kingdom
- Before 1990, the United Kingdom didn’t have any law specific to money laundering, but it became a member of the Financial Action Task Force (FATF) in 1990. After that, the Money Laundering Regulations 1993 (1993 No. 1933) were enacted. The ML Regulations, aligned with FATF standards, marked a significant milestone in the UK’s AML efforts, expanding the scope of oversight to encompass a wide range of financial and non-financial sectors.
- The Joint Money Laundering Intelligence Taskforce (JMLIT) was established in 2015 by the Financial Sector Forum, which meets thrice a year to make the UK’s Financial Sector unfavourable for criminal activity.
- In 2015, the UK published its first National Risk Assessment (NRA), recognising that the factors which make the UK attractive for legitimate financial activity also make it vulnerable to misuse by criminals and terrorists.
- That’s how UK keeps assessing itself and upgrading the regulations for combatting money laundering practices.
Proceeds of Crime Act 2002 (POCA) [As amended by the Serious Organised Crime and Police Act 2005 (SOCPA)]
- It expands the scope of acts that, if committed by any person, constitute money laundering
- Concealing, Disguising, Converting, Transferring, or Removing Criminal Property
- Entering into or Becoming Concerned in an Arrangement
- Acquisition, Use, and Possession of Criminal Property
- Submission of Suspicious Activity Report (SARs) to the UK Financial Intelligence Unit (UK FIU)
- Submission of Defence Against Money Laundering (DAML) SAR
- Asset Recovery.
The Money Laundering, Terrorist Financing and Transfer of Funds (Information on the Payer) Regulations 2017 (MLR 2017) and its subsequent amendments
- It provides for Relevant Persons in the UK to ensure:
- ML/TF Risk Assessment
- Risk-Based CDD
- Establish AML/CFT Policies and Procedures to manage ML/TF risks.
- Ensure ongoing compliance with AML/CFT Policies and Procedures
- Ensure Staff Awareness and Training
- Ensure Adequate Record-Keeping
- It implements the EU Fifth Money Laundering Directive in the UK.
- It extends the scope of the regulated sector, changes to customer due diligence and enhanced due diligence.
- Added a new requirement to make reports to Companies House in relation to discrepancies between information collected during customer due diligence and information on the Persons with Significant Control register, also known as the Ultimate Beneficial Owners (UBOs).
Definition of Terrorist Financing
Process of Terrorism Financing
1) Raise: This is the collection stage, where the terrorism enablers gather money from legal and illegal means. Raising includes:
- Direct donations by individuals and organisations
- Use of charities and
- Generate funds from legal business operations for TF purposes.
2) Store: The second stage includes storing, where terrorism enablers tend to store the funds in a manner that doesn’t attract the authorities’ attention. Storing includes:
- Depositing cash in several bank accounts.
- Use trade-based methods like over- or under-invoicing
- Invest funds in cryptocurrencies and high-value assets.
3) Move: In the Moving stage, funds are mobilised by various formal and informal channels. Moving is a crucial step and is carried out with great confidentiality to avoid attention from law enforcement authorities. Moving includes:
- Bulk cash couriers
- Informal value system transfers
- Sale and transfer of virtual assets.
4) Use: “Use” is the final stage where the funds intended for TF purposes reach the terrorists, and are used for the following purposes:
- Direct operations like purchasing weapons
- Training camps and recruitments
- Support for Allied groups or political activities.
Background of Anti-Terrorism Financing Legislation in the United Kingdom
- The requirement to criminalise terrorist financing was added to the FATF standards at a special plenary session of the FATF in the months following the 11 September 2001 attacks in the US. Before the 9/11 attacks, there was the Terrorism Act 2000 in the UK, but it was regarded as a temporary emergency measure.
- After this attack, the UK developed an effective counter-terrorism mechanism and followed the guidelines of the FATF, remaining a nation where the threat was being managed. After the attack, the UK has been working on
- According to the UK’s HMG publication, Counter-Terrorist Financing remains one of the UK’s priorities under the National Security objectives set out in the UK’s National Security Strategy.
The counter-terrorism regime in UK consists of:
The Joint Terrorism Analysis Centre (JTAC)
- JTAC was founded in 2003
- JTAC is an independent authority on terrorism assessment, defines the national terrorism threat level, and issues warnings to government departments and law enforcement agencies.
Counter Terrorism Strategy (CONTEST)
- CONTEST is the UK’s Counter Terrorism Financing strategy, established in 2003
- CONTEST’s core components provide for protecting UK citizens from terrorism by:
- Preventing
- Pursuing
- Protecting
- Preparing
- Refreshed in 2018 and 2023, it governs and monitors cross-government counter-terrorism performance.
The Terrorism Act (TACT) 2006
- TACT provides the length of time that a terror suspect could be detained without charge
- TACT elaborates on acts of terrorism by creating offences of publication or dissemination of terrorist publications
- TACT provides institutions with the ability to submit SARs to the UK FIU and file DAML.
Sanctions and Anti-Money Laundering Act (SAMLA), 2018
- It provides the legal framework for the UK to impose, update and lift sanctions.
The ISIL (Da’esh) and Al-Qaida (United Nations Sanctions) (EU Exit) Regulations, 2019
- It ensures sanctions under the UN sanctions regime in respect of ISIL (Da’esh) and Al-Qaida continue to be implemented effectively.
The UK Counter-Terrorism (International Sanctions) (EU Exit) Regulations, 2019
- It allows the UK to implement autonomous UK listings with an international focus related to Counter-Terrorism and ensures the UK implements its international obligations under the UN Security Council Resolution 1373
The Counter-Terrorism (Sanctions) (EU Exit) Regulations, 2019
- SAMLA came into force at the end of the EU exit transition period.
- SAMLA allows the designation of individuals, groups or entities with a clear UK nexus where the designation will be in the interests of countering terrorist threats and/or protecting UK national security.
Importance of Understanding the Nexus Between Money Laundering and Terrorist Financing
- Enhancing suspicious activity and transaction detection
- Implementing a risk-based approach to mitigate ML/TF risk
- Enforcing robust internal AML/CFT Policies, Procedures, and Controls.
Similarities Between Money Laundering and Terrorist Financing
Same Compliance Requirement: Both ML/TF compliance procedures are the same from the registration of the relevant Person to the appointment of the Nominated Officer, to Firm-Risk Assessment, the CDD procedure that includes KYChe investigation procedure of the Suspicious Activity Report (SAR) of both ML/TF is done by the UK Financial Intelligence Unit (UKFIU).
Same Legal Framework: Both ML/TF are governed by The Money Laundering, Terrorist Financing and Transfer of Funds (Information on the Payer) Regulations 2017 in the UK.
Shared Placement Pathways: Both ML/TF processes involve the placement, i.e., the introduction of funds into financial systems, such as banks, charities, and high-value assets. Launderers and terrorism enablers are focused on the same path to channelise their funds.
Difference Between Money Laundering and Terrorist Financing
| Basis of Differentiation | Money Laundering | Terrorist Financing |
| Origin of Funds | The funds arise from illegal activities only. | The funds can arise from both legal and illegal activities. |
| Process | Money Laundering is a circular process as it starts with the person who obtained the dirty money from the predicate offence then moves on to wire transfers to hide the source, the money then returned to the original person in a way that it appears legitimate. | Terrorism Financing is a linear process where the money will be transferred to the terrorist for the collection weapons and destructive materi als, training, and carrying out terrorist attacks. |
| Threats | According to NRA 2020, Money Mules and Trade Based Money Laundering (TBML) are threats to the UK as it exploits both domestic trade practices and the international trade practices. . | According to NRA 2020, Islamist Terrorism and Far-Right Terrorism |
Nexus Between Money Laundering and Terrorist Financing
1. Shell Companies
Shell companies are those which are just on paper but are not operational companies. Shell companies are misused by criminals to further money laundering and terrorist financing activities. The Relevant Person, while doing the AML compliance procedure, should make sure that they check the ownership structure of the business and their purpose structure so that an initial check can be done to see whether it is a legal operational company or a shell company made for illegal purposes.
For example: An authorised signatory of agricultural business comes to a Relevant Person, (High Value Dealers of Precious Metals And Stones) for purchase of precious stones worth millions, here the Relevant Person (High Value Dealers of Precious Metals And Stones) needs to check the economic rationale of the proposed business relationship and the Money Laundering Reporting Officer (MLRO) or the Nominated Officer (NO) should decide whether or not to file SAR on the NCA portal based on the facts of the case, so that the relevant person doesn’t unwittingly help the launderer or terrorism enabler (agriculture business, in this example).
2. Complex Transactions
Complex transactions, as the name suggests, are transactions where understanding the Source of Funds (SoF) and Source of Wealth (SoW) is difficult. Criminals use such transactions to make it difficult to detect the source of illicit money. The Relevant Person should ensure that their employees conduct the CDD procedure very carefully and know the red flags for the timely identification of suspicious transactions and activities so that the filing of SAR can be done in time.
3. Trade-Based Money Laundering (TBML)
Trade-Based Money Laundering (TBML) is a method where invoice values are manipulated by either over- or under-invoicing. Both ML/TF actors utilise this method to manipulate transactions and conceal the movement of illicit funds in the economy.
The relevant person should ensure regular CRA to detect red flags. These red flags should also be inculcated within the AML/CFT policies and procedures so that they help the employees and the Relevant persons detect the launderers or terrorism enablers at the initial stage.
4. Shared Vulnerabilities
The word vulnerable literally means lacking protection against attack or harm. In the context of ML/TF, businesses are susceptible to exploitation by criminals who may misuse them as vehicles to facilitate money laundering and terrorist financing activities.
So, the Relevant Person while developing their Firm-wide risk assessment (FWRA) should consider their weak/vulnerable points for creating better controls and prevent themselves from being an unwitting vehicle to the launderers and terrorists.
5. Overlap in Regulatory Compliance
The Relevant Person must ensure the formulation, implementation, and compliance with AML/CFT policies and procedures, which include measures such as Customer Due Diligence (CDD), ongoing monitoring, regulatory reporting, and external independent audit. Relevant Persons operating in multiple jurisdictions must ensure that their compliance processes do not overlap.
6. International Cooperation
ML and TF are inherently cross-border crimes which often involve complex networks that span multiple countries. To effectively combat these illicit activities, international cooperation is essential. Also, the Relevant Person needs to be very cautious while doing international trade as the other side’s business could be a launderer, terrorist or their agent.
7. Mutual Dependence Between Money Laundering and Terrorist Financing
Money laundering and terrorist financing go hand in hand; their pathway to channel funds is the same, by which they affect the financial and non-financial systems of countries. They are mutually interdependent as terrorist do use a money laundering network to transfer the money they receive from their benefactors.
Challenges Faced by Relevant Persons in UK Com While Combatting Money Laundering and Terrorism Financing Risks
Emergence of New Typologies
- Mule Accounts
- Organised Crime Groups (OCGs)
- Professional Money Laundering.
Mismatch in Regulatory Controls
As money laundering and terrorist financing are cross-border crimes, the rules, regulations and laws pertaining to AML/CFT vary from one country to another. Criminals involved in money laundering and terrorist financing (ML/TF) take undue advantage of regulatory variations to transfer funds for their own purposes.
There are numerous laws and acts in the UK governing AML/CFT, which tend to confuse the relevant persons, having multi-jurisdictional presence, as it becomes burdensome for them to go through all the regulations of different countries and maintain consistency across cross-border AML/CFT compliance requirements.
Lack of trained AML Professionals
Lack of Awareness in the Non-Financial Sector
UK’s Global Efforts in Fighting ML/TF
Most countries in the world follow FATF guidelines. The United Kingdom is one of them. Since 1990, the UK has adhered to FATF guidelines, and the recent Mutual Evaluation 2018 concluded that the country was compliant with 31 of the FATF’s recommendations. The UK was placed on the regular follow-up process immediately after the adoption of its third-round Mutual Evaluation Report (MER).
The Joint Money Laundering Steering Group (JMLSG) is a UK-based organisation that produces guidance (JMLSG Guidance) to assist those in financial industry sectors represented on JMLSG by their trade member bodies in complying with their obligations under UK anti-money laundering (AML) and counter-terrorist financing (CTF) legislation and the regulations prescribed pursuant to it.
Anti-Money Laundering and Counter-Terrorism Financing Need Stringent Compliance Procedure: Concluding Thoughts
Money laundering is a crime that the world faces financial loss from, and terrorist financing is a crime that the world suffers human loss from. If these crimes and their sources are not detected and stopped, then it will only lead to a world where neither money nor mankind is safe. Therefore, it is crucial for the Relevant Person to have stringent measures in place to detect such acts at the earliest stage, so that launderers and terrorists are unable to take them to the next stage or exploit the Relevant Person as an unwitting vehicle to carry out their illicit practices.
The Relevant Person must follow the guidelines and implement stringent compliance procedures with trained staff, ensuring that the process from registration to customer due diligence, filing SAR/STR, and record-keeping is carried out smoothly.
About the Author
Pathik Shah
FCA, CAMS, CISA, CS, DISA (ICAI), FAFP (ICAI)
Pathik is a Chartered Accountant with more than 26 years of experience in governance, risk, and compliance. He helps companies with end-to-end AML compliance services, from conducting Enterprise- Wide Risk Assessments to implementing the robust AML Compliance framework. He has played a pivotal role as a functional expert in developing and implementing RegTech solutions for streamlined compliance.








