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Notice of the People's Bank of China on Issuing the Guidelines for the Assessment of Money Laundering and Terrorism Financing Risks and Categorized Management of Customers of Financial Institutions
(No. 2 [2013] of the People's Bank of China)
The Shanghai Headquarters, all branches and business management departments, and all central sub-branches in capital cities of provinces (autonomous regions) and sub-provincial cities of the People's Bank of China; China Development Bank; all policy banks, state-owned commercial banks and joint-stock commercial banks; Postal Savings Bank of China; China UnionPay Co., Ltd., Rural Credit Banks Funds Clearing Center, and Clearing Center for City Commercial Banks:
To further implement risk-based approaches against money laundering, guide financial institutions in assessing money laundering and terrorism financing (hereinafter collectively referred to as “money laundering”) risks, rationally determine the money laundering risk levels of customers, and improve the efficiency of work against money laundering and financing of terrorism, In accordance with the Anti-Money Laundering Law of the People's Republic of China and other relevant legal provisions, the People's Bank of China (“PBC”) has developed the Guidelines for the Assessment of Money Laundering and Terrorism Financing Risks and Categorized Management of Customers of Financial Institutions (hereinafter referred to as the “Guidelines”), which are hereby issued, and you are hereby notified of the following issues concerning the implementation of the Guidelines for your compliance and implementation.
| | 中国人民银行关于印发《金融机构洗钱和恐怖融资风险评估及客户分类管理指引》的通知
（银发〔2013〕2号）
中国人民银行上海总部，各分行、营业管理部，各省会（首府）城市中心支行，各副省级城市中心支行；国家开发银行、各政策性银行、国有商业银行、股份制商业银行，中国邮政储蓄银行；中国银联、农信银资金清算中心、城市商业银行资金清算中心：
为深入实践风险为本的反洗钱方法，指导金融机构评估洗钱和恐怖融资（以下统称洗钱）风险，合理确定客户洗钱风险等级，提升反洗钱和反恐怖融资工作有效性，根据《中华人民共和国反洗钱法》等法律规定，中国人民银行制定了《金融机构洗钱和恐怖融资风险评估及客户分类管理指引》（以下简称《指引》），现印发给你们，并就执行《指引》中的有关事项通知如下，请遵照执行。
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I. Work arrangements for financial institutions
Financial institutions may, according to the independent management principle established by the Guidelines, decide whether to implement the Guidelines.
| | 一、金融机构工作安排
金融机构可按照《指引》所确定的自主管理原则，决定是否执行《指引》。
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1. A financial institution which decides to implement all or part of the Guidelines shall proceed according to the following requirements:
| | （一）决定全部或部分执行《指引》规定的金融机构应按照以下要求开展工作：
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(1) It shall, before March 15, 2013, make a work plan for the implementation of the Guidelines and submit it to the PBC or the local branch office of the PBC authorized by the PBC to conduct anti-money laundering supervision of the financial institution (hereinafter referred to as the “local PBC office”).
| | 1．在2013年3月15日前制定执行《指引》的工作方案，报中国人民银行或中国人民银行授权对该金融机构实施反洗钱监管的当地中国人民银行分支机构（以下统称当地中国人民银行分支机构）。
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(2) It shall, before December 31, 2013, make or improve anti-money laundering internal control rules and operating procedures (hereinafter referred to as the “new internal control rules”) according to the requirements of the Guidelines and submit them to the PBC or the local PBC office for recordation.
| | 2．在2013年12月31日前按照《指引》要求，制定或修改完善反洗钱内控制度及操作流程（以下统称新内控制度），并向中国人民银行或当地中国人民银行分支机构报备。
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(3) It shall, before January 1, 2015, commence the implementation of the new internal control rules and, according to the requirements of the Guidelines, commence the assessment of money laundering and terrorism financing risks and determination of risk levels of customers.
| | 3．在2015年1月1日前实施新内控制度，按照《指引》要求，启动洗钱和恐怖融资风险评估以及客户风险等级划分等工作。
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(4) It shall, before December 31, 2015, finish reconfirming the risk levels of customers already in business relations with it before the commencement of implementation of the new internal control rules. If it has an especially heavy workload, it may apply to the PBC for appropriately extending the working period.
| | 4．在2015年12月31日前，完成对新内控制度实施前已与本机构建立业务关系客户的风险等级的重新确认工作。工作量特别大的金融机构可向中国人民银行申请适当延长工作期限。
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2. A financial institution which decides not to implement the Guidelines shall, before September 15, 2013, finish the assessment and demonstration work and submit a written report on the assessment and demonstration methods, processes and conclusions to the PBC or the local PBC office. If it receives no objection from the PBC or the local PBC office within 30 working days, it is no longer required to comply with the requirements of this Notice.
| | （二）决定不执行《指引》的金融机构应在2013年9月15日前完成评估论证工作，并向中国人民银行或当地中国人民银行分支机构书面报告评估论证的方法、过程及结论。金融机构在30个工作日内未收到中国人民银行或当地中国人民银行分支机构反馈异议的，可不再执行本通知要求。
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II. Requirements on the regulatory work of the PBC
After receiving the work plan and relevant report submitted by a financial institution, the PBC or its local office shall, within 30 working days, inform the financial institution of any objection raised.
The PBC and its local offices shall, in the anti-money laundering supervision, place emphasis on the implementation by financial institutions and their branch offices of the new internal control rules consistent with the requirements of the Guidelines and other anti-money laundering measures established under the independent management principle.
The Shanghai Headquarters, all branches and business management departments, all central sub-branches in capital cities of provinces (autonomous regions), and the central sub-branches in Dalian, Qingdao, Ningbo, Xiamen and Shenzhen of the PBC shall forward this Notice to all urban commercial banks, rural commercial banks, rural cooperative banks, urban credit cooperatives, rural credit cooperatives, village banks, foreign-funded banks, securities companies, futures brokerage companies, fund management companies, insurance companies, insurance asset management companies, trust companies, financial asset management companies, finance companies, financial leasing companies, auto finance companies, currency brokerage companies, and other financial institutions and payment institutions whose headquarters are registered within their respective jurisdictions.
Annex: Guidelines for the Assessment of Money Laundering and Terrorism Financing Risks and Categorized Management of Customers of Financial Institutions
People's Bank of China
January 5, 2013
Guidelines for the Assessment of Money Laundering and Terrorism Financing Risks and Categorized Management of Customers of Financial Institutions
To further implement risk-based anti-money laundering approaches, guide financial institutions in assessing money laundering and terrorism financing (hereinafter collectively referred to as “money laundering”) risks, rationally determine the money laundering risk levels of customers, and improve the efficiency of work against money laundering and financing of terrorism (hereinafter collectively referred to as “anti-money laundering”), these Guidelines are developed in accordance with the Anti-Money Laundering Law of the People's Republic of China and other relevant laws.
| | 二、中国人民银行监管工作要求
中国人民银行或其分支机构收到金融机构提交的工作方案及相关报告后，如有不同意见，应在30个工作日内向金融机构反馈。
中国人民银行及其分支机构应将金融机构、金融机构分支机构执行符合《指引》 要求的新内控制度以及按自主管理原则确立的其他反洗钱措施情况，作为反洗钱监管重点。
请中国人民银行上海总部，各分行、营业管理部，各省会（首府）城市中心支行，大连、青岛、宁波、厦门、深圳市中心支行将本通知转发至总部注册地在辖区内的各城市商业银行、农村商业银行、农村合作银行、城市信用社、农村信用社、村镇银行、外资银行、证券公司、期货经纪公司、基金管理公司、保险公司、保险资产管理公司、信托公司、金融资产管理公司、财务公司、金融租赁公司、汽车金融公司、货币经纪公司等金融机构和支付机构。
附件：金融机构洗钱和恐怖融资风险评估及客户分类管理指引
中国人民银行
2013年1月5日
金融机构洗钱和恐怖融资风险评估及客户分类管理指引
为深入实践风险为本的反洗钱方法，指导金融机构评估洗钱和恐怖融资（以下统称洗钱）风险，合理确定客户洗钱风险等级，提升反洗钱和反恐怖融资（以下统称反洗钱）工作有效性，根据《中华人民共和国反洗钱法》等法律制定本指引。
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Chapter I General Provisions
| | 第一章 总则
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I. Basic Principles
| | 一、基本原则
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1. The risk equivalent principle. Financial institutions shall scientifically allocate anti-money laundering resources according to the risk assessment results, adopt reinforced anti-money laundering measures in areas with higher money laundering risks, and adopt simplified anti-money laundering measures in areas with lower money laundering risks.
| | （一）风险相当原则。金融机构应依据风险评估结果科学配置反洗钱资源，在洗钱风险较高的领域采取强化的反洗钱措施，在洗钱风险较低的领域采取简化的反洗钱措施。
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2. The principle of comprehensiveness. Subject to the exceptions set out in these Guidelines, financial institutions shall comprehensively assess the risk status of customers and their locations, businesses, industries (occupations) and other aspects to scientifically and rationally determine the risk level of each customer.
| | （二）全面性原则。除本指引所列的例外情形外，金融机构应全面评估客户及地域、业务、行业（职业）等方面的风险状况，科学合理地为每一名客户确定风险等级。
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3. The principle of sameness. Financial institutions shall establish and improve workflows for assessing money laundering risks and determining the risk levels of customers. One customer shall be assigned one risk level only in one financial institution but may be assigned different risk levels by different financial institutions within the same group.
| | （三）同一性原则。金融机构应建立健全洗钱风险评估及客户风险等级划分流程，赋予同一客户在本金融机构唯一的风险等级，但同一客户可以被同一集团内的不同金融机构赋予不同的风险等级。
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4. The principle of dynamic management. A financial institution shall, as the risk status of a customer changes, adjust the customer's risk level and corresponding risk control measures in a timely manner.
| | （四）动态管理原则。金融机构应根据客户风险状况的变化，及时调整其风险等级及所对应的风险控制措施。
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5. The principle of independent management. If a financial institution confirms upon assessment and demonstration that the effect of implementing its self-determined risk assessment standards or risk control measures is not lower than that of these Guidelines or a requirement of these Guidelines, the financial institution may decide not to comply with these Guidelines or the requirement of these Guidelines, provided that the assessment and demonstration methods, processes and conclusions are documented.
| | （五）自主管理原则。金融机构经评估论证后认定，自行确定的风险评估标准或风险控制措施的实施效果不低于本指引或其中某项要求，即可决定不遵循本指引或其中某项要求，但应书面记录评估论证的方法、过程及结论。
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6. The principle of confidentiality. Financial institutions may not divulge information on the risk levels of customers to the customers and other third parties irrelevant to the anti-money laundering work.
| | （六）保密原则。金融机构不得向客户或其他与反洗钱工作无关的第三方泄露客户风险等级信息。
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II. Functions
| | 二、功能
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1. The risk assessment factors and risk sub-items as listed in these Guidelines are reference indicators for financial institutions to comprehensively and scientifically assess money laundering risks and a basis for financial institutions to determine the money laundering risk levels of customers.
| | （一）本指引所列风险评估要素及其风险子项是金融机构全面科学评估洗钱风险的参考指标，为金融机构划分客户洗钱风险等级提供依据。
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2. The workflows established by these Guidelines are necessary management measures for financial institutions to scientifically consolidate various internal resources, especially maximize the fundamental role of each business line in knowing their customers, and effectively assess and manage money laundering risks.
| | （二）本指引所确定的工作流程是金融机构科学整合内部各类资源，特别是发挥业务条线了解客户的基础性作用，有效评估、管理洗钱风险的必要管理措施。
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3. These Guidelines help guide financial institutions in optimizing their allocation of anti-money laundering resources according to the results of money laundering risk assessment and custom risk level determination.
| | （三）本指引有助于指导金融机构依据洗钱风险评估及客户风险等级划分结果，优化反洗钱资源配置。
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III. Scope of Application
These Guidelines shall apply to the assessment of money laundering risks, the determination of money laundering risk levels of customers, and other risk management work of financial institutions. Payment institutions and other specific non-financial institutions with anti-money laundering obligations may conduct relevant work by referring to these Guidelines.
Based on its actual risk status, a banking financial institution may, at its discretion, decide whether to apply the requirements of these Guidelines to one-off transaction customers.
Based on its actual risk status, an insurance financial institution may, at its discretion, decide whether to apply the requirements of these Guidelines to persons other than policy holders.
The industry self-regulatory organizations for financial institutions and specific non-financial institutions may develop guidelines for specific industries on the basis of these Guidelines.
| | 三、适用范围
本指引适用于金融机构开展洗钱风险评估、客户洗钱风险等级划分及其他风险管理工作。支付机构及其他应履行反洗钱义务的特定非金融机构可参照本指引开展相关工作。
银行业金融机构可根据实际风险状况，自主决定是否将本指引的要求运用于一次性交易客户。
保险业金融机构可根据实际风险状况，自主决定是否将本指引的要求运用于投保人以外的其他人员。
金融机构和特定非金融机构的行业自律组织可根据本指引进一步制定分行业的指引。
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Chapter II Risk Assessment Indicator System
| | 第二章 风险评估指标体系
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I. An Overview of the Indicator System
The money laundering risk assessment indicator system involves four basic factors: customers' characteristics, locations, businesses (including financial products and financial services) and industries (including occupations). Financial institutions shall, in consideration of the characteristics of industry, the type of business, the size of business, the scope of customers and other actual circumstances, disintegrate a basic factor into risk sub-items. Financial institutions may, as actually needed, rationally add new risk assessment indicators. For example, financial institutions may set differential risk assessment standards by distinguishing between new clients and existing clients, customers who are natural persons and customers who are not natural persons, and other contrasting groups, regarding their risk status.
| | 一、指标体系概述
洗钱风险评估指标体系包括客户特性、地域、业务（含金融产品、金融服务）、行业（含职业）四类基本要素。金融机构应结合行业特点、业务类型、经营规模、客户范围等实际情况，分解出某一基本要素所蕴含的风险子项。金融机构可根据实际需要，合理增加新的风险评估指标。例如，金融机构可区分新客户和既有客户、自然人客户和非自然人客户等不同群体的风险状况，设置差异化的风险评级标准。
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II. Risk Sub-items
| | 二、风险子项
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1. Risk sub-items of characteristics of customers
A financial institution shall comprehensively consider the backgrounds, characteristics of social and economic activities, and reputations of its customers, the information on its customers disclosed by authoritative media, and the organizational structures of its customers who are not natural persons, among others, to estimate the difficulty in conducting customer due diligence and assess risks. Risk sub-items include without limitation the following:
| | （一）客户特性风险子项。
金融机构应综合考虑客户背景、社会经济活动特点、声誉、权威媒体披露信息以及非自然人客户的组织架构等各方面情况，衡量本机构对其开展客户尽职调查工作的难度，评估风险。风险子项包括但不限于：
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(1) The extent of information disclosure of customers. A greater extent of information disclosure of a customer means a lower cost for a financial institution to conduct customer due diligence and more controllable risks. For example, because the costs of due diligence of government agencies, public institutions, state-owned enterprises, and companies listed on well-regulated securities markets are lower, lower risk levels may be assigned to them accordingly.
| | 1．客户信息的公开程度。客户信息公开程度越高，金融机构客户尽职调查成本越低，风险越可控。例如，对国家机关、事业单位、国有企业以及在规范证券市场上市的公司开展尽职调查的成本相对较低，风险评级可相应调低。
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(2) Channels for financial institutions to establish or maintain business relations with customers. Such channels would affect the convenience, reliability and accuracy of due diligence conducted by financial institutions. For example, when customers directly meet with financial institutions, financial institutions could know more about customers, and due diligence results could be more effective than those from indirect channels. Risks associated with different types of indirect channels are also different. For example, financial institutions could obtain more convenient and accurate due diligence results from affiliated companies than intermediaries.
| | 2．金融机构与客户建立或维持业务关系的渠道。渠道会对金融机构尽职调查工作的便利性、可靠性和准确性产生影响。例如，在客户直接与金融机构见面的情况下，金融机构更能全面了解客户，其尽职调查成果比来源于间接渠道的成果更为有效。不同类的间接渠道风险也不尽相同，例如，金融机构通过关联公司比通过中介机构更能便捷准确地取得客户尽职调查结果。
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(3) Type of identification or credentials held by customers. The more difficult it is to verify a customer's identification or credentials, the more difficult it is to identify the customer and the higher the customer's risk level is.
| | 3．客户所持身份证件或身份证明文件的种类。身份证件或身份证明文件越难以查验，客户身份越难以核实，风险程度就越高。
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(4) Transaction monitoring records for anti-money laundering purposes. Financial institutions' retrospective review of reports on suspicious transactions would help them understand the risk status of customers. If the cost is acceptable, financial institutions may also conduct retrospective review of the large transactions of customers.
| | 4．反洗钱交易监测记录。金融机构对可疑交易报告进行回溯性审查，有助于了解客户的风险状况。在成本允许的情况下，金融机构还可对客户的大额交易进行回溯性审查。
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(5) Equity or control structure of a non-natural person customer. The effectiveness of customer due diligence conducted by financial institutions is directed affected by the complexity and identifiability of equity or control relations. For example, the due diligence of sole proprietorships, family enterprises, partnerships, and companies with dormant or silent shareholders is usually more difficult than that of ordinary companies.
| | 5．非自然人客户的股权或控制权结构。股权或控制权关系的复杂程度及其可辨识度，直接影响金融机构客户尽职调查的有效性。例如，个人独资企业、家族企业、合伙企业、存在隐名股东或匿名股东公司的尽职调查难度通常会高于一般公司。
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(6) Risk alerts or authoritative media's reports involving customers. When discovering any customers which were the subjects of alerts issued by the regulatory authorities, law enforcement or financial exchanges, customers with a history of crime, financial violations or financial frauds, among others, or customers involved in major negative news reports or comments of authoritative media, financial institutions may assign appropriately higher risk levels to such customers.
．．．．．． | | 6．涉及客户的风险提示信息或权威媒体报道信息。金融机构如发现，客户曾被监管机构、执法机关或金融交易所提示予以关注，客户存在犯罪、金融违规、金融欺诈等方面的历史记录，或者客户涉及权威媒体的重要负面新闻报道评论的，可适当调高其风险评级。
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