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DEDC Appearance, June 14, 2022

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Key Messages: Emergency Economic Measures Order

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Role During Emergency Economic Measures Order – Feb 15-23

Effectiveness/Necessity of the Order/ Information Received or Intelligence Disclosures Related to Convoy

New Regulations

Budget 2022

Budget 2022 proposes more than $28 million in new funding over five years and $3.7 million ongoing for FINTRAC to implement the new Regulations that add businesses offering crowdfunding platforms and certain payment service providers as regulated entities under the PCMLTFA.

Questions and Answers: Emergency Economic Measures Order

Key Messages:

Questions and Answers:

1. What is FINTRAC’s mandate?

As Canada's financial intelligence unit, FINTRAC facilitates the detection, prevention and deterrence of money laundering and the financing of terrorist activities, while ensuring the protection of personal information under its control.

FINTRAC’s dual mandate is to ensure the compliance of businesses subject to the Proceeds of Crime (Money Laundering) and Terrorist Financing Act and Regulations, and to generate actionable financial intelligence for police, law enforcement and national security agencies to assist in the investigation of money laundering and terrorist activity financing offences or threats to the security of Canada.

Compliance Mandate and Registration

2. What businesses sectors are normally covered under the Proceeds of Crime (Money Laundering) and Terrorist Financing Act?

There are currently approximately 24,000 businesses in 10 business sectors that have obligations under the Proceeds of Crime (Money Laundering) and Terrorist Financing Act, including accountants, agents of the Crown, British Columbia notaries, casinos, dealers in precious metals and stones, financial entities, life insurance, money services businesses, real estate, and securities dealers.

3. How did this change under this Emergency Economic Measures Order?

The Emergency Economic Measures Order covered a number of businesses currently subject to the Proceeds of Crime (Money Laundering) and Terrorist Financing Act, including financial entities and money services businesses. The complete list can be found in the Emergency Economic Measures Order.

The Order temporarily required crowdfunding platforms and payment service providers that were in possession or control of property that was owned, held, or controlled by, or on behalf of, an individual or entity that was engaged in an activity which was prohibited under the Emergency Measures Regulations to register with FINTRAC and undertake two reporting obligations: reporting transactions that are suspicious or valued over $10,000.

4. What were the requirements for these businesses under this Order? What additional onus or costs would have been placed upon these businesses?

First, businesses would need to determine whether they were in possession or control of property that was owned, held or controlled by, or on behalf of, an individual or entity that was engaged, directly or indirectly, in the blockades as laid out in the Emergency Measures Regulations.

The implicated crowdfunding platforms and payment service providers were required to register with FINTRAC. This is an existing requirement and practice for money services businesses. The registration process was to be the same.

Crowdfunding platforms and payment service providers were also required to report suspicious transactions, large cash transactions, international electronic funds transfers, and large virtual currency transactions when applicable legal thresholds set out in the Proceeds of Crime (Money Laundering) and Terrorist Financing Act and its Regulations were met. These same requirements already exist for many businesses operating in the financial services sector.

In order to fulfill their obligations, as all businesses that are subject to the Act, the implicated crowdfunding and payment service providers would have been required to establish a compliance program, identify clients, keep records and report certain types of financial transactions to FINTRAC.

5. What businesses were required to register with FINTRAC under the Order?

Crowdfunding platforms and payment service providers were required to register with FINTRAC if they were in possession or control of property that was owned, held, or controlled by, or on behalf of, an individual or entity that was engaged, directly or indirectly, in an activity which was prohibited under the Emergency Measures Regulations.

Money services businesses, which were already registered with FINTRAC, and which met the criteria above, were also required to update their registration if they operated a crowdfunding platform or performed functions of a payment service provider.

6. Does this mean that not all crowdfunding platforms and the payment service providers needed to register with FINTRAC?

This temporary Order required crowdfunding platforms and payment service providers to register with FINTRAC if they were in possession or control of property that was owned, held, or controlled by, or on behalf of, an individual or entity that was engaged, directly or indirectly, in an activity which was prohibited under the Emergency Measures Regulations.

7. Why were crowdfunding platforms and payment service providers singled out in this Order?

In announcing the invocation of the Emergencies Act, the Deputy Prime Minister and Minister of Finance pointed to crowdfunding platforms and payment service providers that were being used to support the illegal blockades and illegal activity.

The Emergency Economic Measures Order identified a number of different financial services entities to undertake certain obligations. Many of those entities, such as banks and credit unions, are already subject to the Proceeds of Crime (Money Laundering) and Terrorist Financing Act and are required to report the same transactions to FINTRAC.

The Order temporarily expanded the number of reporting entities subject to the Act, narrowly defining the implicated business and limited the scope of their reporting obligations.

8. When were those businesses expected to register with FINTRAC and begin providing suspicious or large transaction reporting?

The Order came into effect on February 15, 2022. It was revoked on February 23, 2022.

9. How many crowdfunding platforms and payment service providers registered with FINTRAC?

Under the Emergencies Economic Measures Order, crowdfunding platforms and payment service providers were required to register with FINTRAC when they were in possession or control of property that was owned, held, or controlled by an individual or entity that was engaged in an activity which was prohibited in the Emergency Measures Regulations.

As the Order was only in effect for 8 days, no registrations were completed under its auspices. 21 CF/PSPs pre-registered with FINTRAC in advance of the Order.

10. What new entities registered with FINTRAC as a result of the Emergency Economic Measures Order?

As of February 23, 21 crowdfunding platforms and payment services providers had pre-registered with FINTRAC. This process was halted with the revocation of the Emergency Economic Measures Order.

Given the Order was revoked and the registrations halted, the Centre cannot share the names of the entities that had contacted FINTRAC under the Proceeds of Crime (Money Laundering) and Terrorist Financing Act.

11. There are more than 21 crowdfunding platforms and payment service providers operating in Canada. Did crowdfunding platforms and payment service providers not comply with the requirement to register with FINTRAC?

The Order only required crowdfunding platforms and payment service providers to register with FINTRAC if they were in possession or control of property owned by a designated person - meaning any individual or entity engaged in activities prohibited under the Emergency Measures Regulations.

12. What was the process for registering as a crowdfunding platform or payment service provider?

Businesses were able to register or update their registration with FINTRAC by going on the Centre’s website and following the steps for registration. The same process pre-dated the Order for money services businesses.

13. What now happens to those entities that registered with FINTRAC?

With the revocation of the Emergency Economic Measures Order, the registration process was halted.

New Regulations that add businesses offering crowdfunding platforms and certain payment service providers as regulated entities under the PCMLTFA were published in the Canada Gazette on April 27th. FINTRAC is currently undertaking work to register new entities and ensure that existing reporting entities are aware of any new obligations. The Centre will be reasonable in its assessment and enforcement approach.

14. How were businesses able to identify financial transactions that require further scrutiny and action under the Order?

Businesses covered under the Proceeds of Crime (Money Laundering) and Terrorist Financing Act are required to have measures in place that enable them to establish whether they have reasonable grounds to suspect that financial transactions are related to the commission of a money laundering or terrorist activity financing offence.

These measures include screening for, and identifying, transactions that may be suspicious based on money laundering and terrorist financing indicators relevant to the facts and context of the activity prohibited by the Emergency Measures Regulations.

These measures also include assessing the facts and context surrounding the suspicious transaction, such as whether the transactions are related to any individual or entity that is engaged, directly or indirectly, in an activity prohibited by the Emergency Measures Regulations, to establish whether a suspicious transaction report should be submitted to FINTRAC. More information on how to assess facts and context can be found in FINTRAC’s Guidance entitled “What is a Suspicious Transaction Report?”

15. Do any other AML/ATF regimes in the world regulate these businesses?

Internationally, there is currently no formal and harmonized requirement specifically subjecting crowdfunding platforms to supervision within AML/ATF regimes. More generally, international standards require financial institutions to conduct customer due diligence for all customers, including crowdfunding platforms.

16. What if the crowdfunding platforms and payment service providers were located in foreign jurisdictions?

Businesses located in foreign jurisdictions have had the obligation to register with FINTRAC since June 2020, if they are engaged in providing at least one of the money services business (MSB) services.

If a crowdfunding platform or payment service provider operating in a foreign jurisdiction was in possession or control of property that was owned, held, or controlled by, or on behalf of, an individual or entity that was engaged, directly or indirectly, in an activity which was prohibited under the Emergency Measures Regulations, they were subject to the same obligations as these foreign entities.

17. How were you going to enforce this Order?

Following the announcement of the Emergencies Act, FINTRAC updated its website and registration guidance to enable crowdfunding platforms and payment service providers to begin the registration process with FINTRAC and report prescribed and suspicious transactions to the Centre. This was halted with the revocation of the Emergency Economic Measures Order.

Businesses covered under the Proceeds of Crime (Money Laundering) and Terrorist Financing Act are subject to compliance activities as outlined in FINTRAC’s Compliance Framework, including compliance examinations. Non-compliance with the Proceeds of Crime (Money Laundering) and Terrorist Financing Act could result in civil or criminal penalties.

18. Were any enforcement actions taken resulting from the Order, either during or post-facto?

As a financial intelligence unit, FINTRAC is not responsible for taking enforcement actions. We provide law enforcement and national security agencies with intelligence once we meet our thresholds as per the Act. Enforcement questions would be better placed with the RCMP and CSIS.

19. Did FINTRAC have the capacity to register all of these businesses and review all of the new suspicious transaction reporting that is expected?

FINTRAC reallocated capacity in the short term to fulfill these requirements.

Intelligence mandate

20. What exactly does FINTRAC’s role entail?

As Canada’s anti-money laundering and anti-terrorism financing regulator, FINTRAC is responsible for ensuring the compliance of thousands of businesses with requirements under the Act, including financial entities, casinos, money services businesses, real estate and others.

As part of their obligations, businesses subject to the Act are required to establish a compliance program, identify clients, keep records and report certain types of financial transactions to FINTRAC, including: international electronic funds transfers totaling $10,000 or more in 24 hour period; large cash transactions totalling $10,000 or more in a 24 hour period; large virtual currency transactions totaling $10,000 or more in 24 hour period; and suspicious transactions, which have no monetary threshold for reporting.

The reports that FINTRAC receives from Canadian businesses are analyzed and assessed and, when the Centre has reasonable grounds to suspect that financial intelligence would be relevant to investigating or prosecuting a money laundering offence or a terrorist activity financing offence, or would be relevant to threats to the security of Canada, it generates a financial intelligence disclosure for Canada’s police, law enforcement and national security agencies.

Last year, FINTRAC provided more than 2,000 disclosures of actionable financial intelligence in support of investigations related to money laundering, terrorist activity financing and threats to the security of Canada. Since becoming operational in 2001, the Centre has provided more than 22,000 financial intelligence disclosures to Canada's police, law enforcement and national security agencies.

In 2020–21, FINTRAC’s financial intelligence contributed to 376 major, resource intensive investigations, and many hundreds of other individual investigations at the municipal, provincial and federal levels across the country.

21. What were the prohibited activities established in the Emergency Measures Regulations?

The prohibited activities set out in the Emergency Measures Regulations were the following:

  1. Participation in a public assembly that may reasonably be expected to lead to a breach of the peace by:
    • the serious disruption of the movement of persons or goods, or the serious interference with trade;
    • the interference with the functioning of critical infrastructure; or the support of the threat or use of acts of serious violence against persons or property.
    It was also prohibited to bring a person under 18 to such a public assembly.
  2. Entry into Canada by a foreign national with the intent to participate in, or facilitate a public assembly, other than where exemptions apply.
  3. Travel to, or within, an area where a public assembly was taking place.
    It was also prohibited to bring a person under 18 to travel to, or within 500 meters of an area where a public assembly was taking place, except where exemptions apply (e.g., travel by employees or agents of the Government of Canada, or a province, who is acting in the execution of their duties).
  4. Use of property to support a public assembly.
    It was prohibited to use, collect, provide, make available, or invite a person to provide property to facilitate or participate in any public assembly - or for the purpose of benefiting any person who was facilitating or participating in such an activity.
22. Why were crowdfunding platforms and payment service providers being subject to regulation under the anti-money laundering and terrorist financing regime? Does this mean any money going to support the convoy is considered laundered proceeds of crime or the financing of terrorism?

Crowdfunding platforms and payment service providers were required to provide suspicious transaction reports to FINTRAC when a financial transaction occurred or was attempted, and for which there were reasonable grounds to suspect that the transaction was related to the commission or attempted commission of a money laundering or terrorist activity financing offence.

When, on the basis of its analysis and assessment, FINTRAC has reasonable grounds to suspect that financial intelligence would be relevant to threats to the security of Canada, the Centre generates a financial intelligence disclosure for Canada’s police, law enforcement and national security agencies.

23. What role did FINTRAC play in the tracking of funds that have been frozen by Canada’s banks?

We do not have the authority to monitor or track financial transactions in real time, freeze or seize funds, ask any entity to freeze or seize funds, or cancel or delay financial transactions.

This did not change under the Emergencies Act or the Emergency Economic Measures Order.

To be clear, FINTRAC is responsible for ensuring that businesses subject to the Act fulfill their requirements such as identifying clients, keeping records and reporting certain types of financial transactions.

Compliance with the broader legislative and regulatory obligations provides important measures for deterring criminals and terrorists from operating within Canada’s legitimate economy.

Compliance with the legislation also ensures that FINTRAC receives the information that we need to generate financial intelligence for Canada’s police, law enforcement and national security agencies to act upon.

The reports that FINTRAC receives from Canadian businesses are analyzed and assessed and, when the Centre has reasonable grounds to suspect that financial intelligence would be relevant to investigating or prosecuting a money laundering offence or a terrorist activity financing offence, FINTRAC generates a financial intelligence disclosure for Canada’s police, law enforcement and national security agencies.

24. How many financial accounts of those participating/organizing the illegal blockades have been frozen by financial service providers?

This question would best be answered by the RCMP and financial service providers.

We do not have the authority to monitor or track financial transactions in real time, freeze or seize funds, ask any entity to freeze or seize funds, or cancel or delay financial transactions.

25. How was FINTRAC going to use the new reporting that it received?

Suspicious transaction reporting, in particular, is critical to FINTRAC’s ability to generate actionable financial intelligence for Canada’s police, law enforcement and national security agencies. These reports are analyzed and assessed alongside the other reports and information that FINTRAC receives.

When, on the basis of its analysis and assessment, FINTRAC has reasonable grounds to suspect that financial intelligence would be relevant to investigating or prosecuting a money laundering offence or a terrorist activity financing offence, or would be relevant to threats to the security of Canada, the Centre generates a financial intelligence disclosure for Canada’s police, law enforcement and national security agencies.

26. How are you protecting the privacy rights of those wanting to donate to legitimate causes?

FINTRAC’s requirements in relation to the protection of privacy under the Proceeds of Crime (Money Laundering) and Terrorist Financing Act did not change. The safeguarding of personal information is critical to FINTRAC and clear principles for the protection of privacy are set out in its governing legislation, including strict limitations on the information that can be received and disclosed, clear requirements for maintaining and disposing of records, and a biennial audit of FINTRAC’s protection of information by the Office of the Privacy Commissioner. These principles are reinforced by the Centre’s own operational policies and security measures.

27. Have you received any reporting or other financial transaction reporting related to the illegal blockades?

As a financial intelligence unit, and under the Proceeds of Crime (Money Laundering) and Terrorist Financing Act, FINTRAC cannot speak to reporting that the Centre receives from businesses.

28. Has there been a spike in suspicious transaction reporting or other financial transaction reporting related to the illegal blockades?

As a financial intelligence unit, and under the Proceeds of Crime (Money Laundering) and Terrorist Financing Act, FINTRAC cannot speak to reporting that the Centre receives from businesses.

29. Has FINTRAC provided any financial intelligence to Canada’s police, law enforcement or national security agencies related to the illegal blockades?

As a financial intelligence unit, and under the Proceeds of Crime (Money Laundering) and Terrorist Financing Act, FINTRAC cannot speak to any financial intelligence that the Centre has or has not provided to Canada’s police, law enforcement and national security agencies.

30. Did FINTRAC observe significant funding from foreign sources going to support the illegal blockades?

We do not have the authority to monitor or track financial transactions in real time, freeze or seize funds, ask any entity to freeze or seize funds, or cancel or delay financial transactions. This did not change under the Emergencies Act or the Emergency Economic Measures Order.

31. Were cryptocurrency platforms used to fund the illegal blockades?

In December 2020, with the new requirement for dealers in virtual currency to register as money services businesses and submit suspicious transaction reports to FINTRAC, the Centre also generated and posted money laundering and terrorist financing indicators in relation to virtual currency transactions.

As well, as of June 2021, all businesses subject to the Act that receive virtual currency, including financial entities, must report all large virtual currency transactions totaling $10,000 or more in 24 hour period to FINTRAC.

32. What will you do with the information that you received under the Emergencies Economic Measures Order?

Any information that FINTRAC received legally under the Emergencies Economic Measures Order will be subject to all of the comprehensive safeguards and protections that apply to information that the Centre receives under the Proceeds of Crime (Money Laundering) and Terrorist Financing Act.

I will note, generally, that all reports that FINTRAC receives from businesses are analyzed and assessed and, only when the Centre has reasonable grounds to suspect that financial intelligence would be relevant to investigating or prosecuting a money laundering offence or a terrorist activity financing offence, or would be relevant to threats to the security of Canada, would it provide a financial intelligence disclosure to Canada’s police, law enforcement and national security agencies.

FINTRAC’s requirements in relation to the protection of privacy under the Proceeds of Crime (Money Laundering) and Terrorist Financing Act did not change under the Order. The safeguarding of personal information is critical to FINTRAC and clear principles for the protection of privacy are set out in its governing legislation, including strict limitations on the information that can be received and disclosed, clear requirements for maintaining and disposing of records, and a biennial audit of FINTRAC’s protection of information by the Office of the Privacy Commissioner. These principles are reinforced by the Centre’s own operational policies and security measures.

34. Was the Emergencies Economic Measures Order useful to your intelligence efforts?

As a financial intelligence unit, and under the Proceeds of Crime (Money Laundering) and Terrorist Financing Act, FINTRAC cannot speak to reporting that the Centre receives from businesses or to any financial intelligence that the Centre has or has not provided to Canada’s police, law enforcement and national security agencies.

What I can say is that the Emergencies Economic Measures Order was useful to our financial intelligence efforts.

Emergency Economic Measures Order Text

SOR-2022-22.pdf (justice.gc.ca)

Summary of FINTRAC Appearance – May 3

[REDACTED]

Summary of Previous Meetings

[REDACTED]

Evidence of DEDC Meetings

Evidence number 09 – June 7, 2022 - Evidence - DEDC (44-1) - No. 9 - Parliament of Canada

Evidence number 07 – May 10, 2022 - Evidence - DEDC (44-1) - No. 7 - Parliament of Canada

Evidence number 06 – May 3, 2022 - Evidence - DEDC (44-1) - No. 6 - Parliament of Canada

Evidence number 05 – April 26, 2022 - Evidence - DEDC (44-1) - No. 5 - Parliament of Canada

Evidence number 03 – March 29, 2022 - Evidence - DEDC (44-1) - No. 3 - Parliament of Canada

Links to Videos of Previous DEDC Meetings

April 26th Minister of Public Safety - ParlVu

May 3rd DoF and FINTRAC - ParlVu

May 10th RCMP and CSIS - ParlVu

June 7th DMs DoJ and Public Safety - ParlVu

DEDC Members List

Joint Chairs

Hon. Gwen Boniface (Senate)

Rhéal Éloi Fortin - Bloc Québécois

Matthew Green – NDP

Vice-Chairs

Hon. Claude Carignan (Senate)

Arif Virani - Liberal

Glen Motz - Conservative

Members

Hon. Peter Harder (Senate)

Hon. Vernon Darryl White (Senate)

Rachel Bendayan - Liberal

Larry Brock - Conservative

Yasir Naqvi - Liberal

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