框注 3.3.印度 - 国家战略和国内合作促进 普惠金融

的 年印度金融印度建立了一个坚实制度框架来协调和支持 其金融包容性战略。 国家战略 金融包容性 印度2019-2024 分析了印度的现状 以及的制约因素普惠、具体的金融普惠目标、的战略 实现 目标以及 该机制 TO 衡量进展。 它由 编制 储备银行 印度 反映了并 结果 通过与相关利益相关者的广泛磋商。

部长成立于 年2010 金融稳定与发展委员会， 担任主席由联邦财政，并由技术 Group 负责 金融稳定、金融部门发展、跨监管协调和金融包容性。

每季度

的，负责制定和

印度由的

年周，向全国传播

印度传播。

的机构结构和

时 采用

制定了风险管理，等关键问题风险评估风险的标准 高风险

• 金融包容性指导委员会是一个机构结构，致力于促进不同政府机构 和 监管机构之间的合作，以支持 金融包容性。它有几个主题小组委员会负责实施 金融包容性战略，其中 AML/CFT 问题嵌入 其中。 由所有金融部门参与者 组成的国家金融包容性论坛 每季度召开一次关于一般金融包容性会议，AML /CFT 是其中的一部分。

• 监管机构通过既定结构（banking association、insurance association、microfinance association、national payments conuncil）和小组委员会定期与金融部门接触。 例如， fintech 工作组 提高了对 AML/CFT 和其他合规事务的认识。

Box 3.5. The Netherlands – Engagement and guidance to the industry to support an RBA to the AML Act
框 3.5. 荷兰 – 与行业合作并提供指导以支持根据反洗钱法实施风险评估

Over the last years, the Dutch Central Bank undertook a number of initiatives to engage with, provide guidance and encourage the industry to implement an RBA in application of the Anti-Money Laundering and Anti-Terrorist Financing Act (Wetter voorkoming van witwassen en financieren van terrorisme – Wwft), including:
在过去的几年里，荷兰中央银行采取了一系列措施，与行业合作、提供指导并鼓励行业根据反洗钱和反恐怖融资法（Wwft）实施风险评估，包括：

• Publication of the report “From Recovery to Balance”151 in 2022, recommending banks to improve their customer risk classification processes, apply more limited scrutiny to low-risk customers, and allocate greater capacity to higher-risk customers.
• 2022 年发布报告《从复苏到平衡》151，建议银行改进其客户风险分类流程，对低风险客户采取更有限审查，并为高风险客户分配更多资源。

• Publication of the Dutch Central Bank AML/CFT guidance (“DNB Wwft Q&As and Good Practices”) to implement risk-based AML/CFT requirements. It identifies low, neutral and high-risk scenarios on issues including: ultimate beneficial ownership identification and verification, PEPs and source of funds, determining origin of funds and assets for low- risk customers, policy on remote identification and verification, periodic and event-driven review, etc.152
• 发布荷兰中央银行反洗钱/反恐怖融资指导（“DNB Wwft 问答和良好实践”），以实施基于风险的洗钱/反恐怖融资要求。它确定了包括最终受益所有人识别和验证、高风险客户和资金来源、确定低风险客户的资金和资产来源、远程识别和验证政策、定期和事件驱动审查等问题上的低、中和高风险场景 152

• The organisation, jointly with the Ministry of Finance, of discussions with representatives of the financial sector in 2022 and 2023 focusing on enhancing the RBA in preventing ML/TF.
• 该组织与财政部共同在 2022 年和 2023 年就与金融行业代表进行讨论，重点在于提升 RBA 在预防洗钱/恐怖融资方面的能力。

• The discussion of this issue in the multistakeholder National Forum on the Payment System, aiming to enhance the accessibility, reliability, and efficiency of payment transactions in the Netherlands.153
• 在多利益相关方的支付系统国家论坛上讨论此问题，旨在提高荷兰支付交易的可达性、可靠性和效率 153。

• The Dutch Banking Association has also published various Industry Baselines to support payment service providers in making accurate risk assessments, for example, for non-profit organisations and VASPs (referred to as Crypto-asset Service Providers in the Netherlands).154
• 荷兰银行业协会还发布了多种行业基准，以支持支付服务提供商进行准确的风险评估，例如针对非营利组织和 VASPs（在荷兰称为加密资产服务提供商）。154。

Box 3.6. United States – Joint statement and factsheet to encourage and provide clarity on RBA
框 3.6. 美国 – 联合声明和事实说明，旨在鼓励并提供关于 RBA 的清晰度

The United States Federal Banking Agencies and Financial Crimes Enforcement Network have consistently engaged with the financial sector by direct outreach to the banks they supervise through:
美国联邦银行机构和金融犯罪执法网络通过直接与其监管的银行进行沟通，持续与金融行业互动：

• 在行业会议上发表演讲，• 双边会议

• participation in financial inclusion-focused discussion roundtables and working groups,
• 参与以金融普惠为重点的讨论圆桌会议和工作组，

• the issuance of guidance on the application ofthe RBA, and
• 发布关于 RBA 应用的指导，

• 发布 联合声明

For example, in 2022, the Federal Banking Agencies and Financial Crimes Enforcement Network participated in the issuance of the Joint Statement on the Risk-Based Approach to Assessing Customer Relationships and Conducting Customer Due Diligence155 . The Statement reinforced a longstanding position that:
例如，在 2022 年，联邦银行机构和金融犯罪执法网络参与了《基于风险的方法评估客户关系和进行客户尽职调查联合声明》的发布 155。该声明重申了长期以来的立场：

• no customer type presents a single level of uniform risk a particular risk profile related to ML, TF or other illicit financial activity,
• 没有客户类型会呈现单一水平的统一风险，与洗钱、恐怖融资或其他非法金融活动相关的特定风险特征，

• banks must adopt appropriate risk-based procedures for conducting ongoing CDD that enable them to understand the nature and purpose of customer relationships for developing a customer risk profile, conduct ongoing monitoring to identify and report suspicious transactions and, on a risk basis, maintain and update customer information.
• 银行必须采用适当的基于风险的程序进行持续的客户尽职调查，使其能够了解客户关系的性质和目的，以建立客户风险档案，进行持续监控以识别和报告可疑交易，并根据风险情况维护和更新客户信息。

• banks are encouraged to manage customer relationships and mitigate risks based on customer relationships, rather than decline to provide banking services to entire categories of customers.
• 鼓励银行根据客户关系管理客户关系并降低风险，而不是拒绝向整个客户类别提供银行服务。

2020 年，联邦银行机构和金融犯罪执法网络也参与了 关于慈善机构和非慈善机构的《银行保密法》尽职调查要求的 联合情况说明书 营利性组织156：

• It provides clarity to banks on how to apply an RBA to charities and other NPOs, consistent with the CDD provisions of the Bank Secrecy Act.
• 它为银行如何将风险评估方法应用于慈善机构和其他非营利组织提供了清晰度，与银行保密法中的客户尽职调查规定一致。

• 该声明是为了回应 一些慈善机构报告 在获得和维持准入 方面遇到的困难而制定的 金融服务，危及 慈善机构为最弱势群体做出的重要贡献

• The Federal Banking Agencies reminded banks that charities vary in their risk profiles and should be treated according to such profiles.
• 联邦银行机构提醒银行，慈善机构的风险状况各不相同，应根据其风险状况进行管理。

The United States Treasury and the federal functional regulators encourage FIs to apply an RBA to Customer Identification Programme Rule requirements (e.g., customer identity verification, ongoing CDD) and have clarified the flexibility that the regulatory provisions allow. Examples include:
美国财政部和联邦职能监管机构鼓励金融机构将风险评估方法应用于客户身份识别计划规则要求（例如，客户身份验证、持续的客户尽职调查），并已阐明监管规定所允许的灵活性。例如：

• Interagency Interpretive Guidance on Customer Identification Program Requirements.157
• 跨机构解释性指南：客户身份识别计划要求 157

• Under the Customer Identification Program Rule, banks could accept a New York City Municipal ID containing name, photo, date of birth, address, and signature as “a primary source of identification in opening a new account for either U.S. or non-U.S. persons.
• 根据客户身份识别计划规则，银行可以接受包含姓名、照片、出生日期、地址和签名的纽约市市政身份证，作为“为美国或非美国人士开立新账户的主要身份证明文件”。

Box 4.1. Chile – Account associated to the tax-identification number allocated to all nationals and residents
方框 4.1. 智利 – 与分配给所有国民和居民的个人税号关联的账户

CuentaRUT (RUT Account) is a demand deposit account that targets low-income individuals who do not have access to traditional financial products due to their low resources and/or informal working conditions. The RUT Account is linked to a tax- identification number allocated by law to each Chilean national and foreign resident. The account allows deposits, transfers or withdrawals and can be linked to a debit card (RedCompra) to make payments in different stores, with no monthly maintenance fee. To mitigate risks, the account has certain transaction conditions and limits related to maximum amounts (e.g. max. balance amount USD 4 576; daily transfers limitations, depending on transfer channels).
CuentaRUT（税号账户）是一种针对低收入个人开设的活期存款账户，这些个人由于资源有限和/或非正规工作条件而无法获得传统金融产品。该账户与法律为每位智利国民和外国居民分配的个人税号相关联。该账户允许存款、转账或取款，并且可以与借记卡（RedCompra）关联，以便在不同商店进行支付，无需支付月度维护费。为降低风险，该账户设有某些交易条件和限额，与最高金额（例如，最高余额金额 4,576 美元；每日转账限额，取决于转账渠道）相关。

Box 4.2. El Salvador – Legal requirement to support financial inclusion: verify supervised entities RBA and simplified opening of savings accounts
方框 4.2. 萨尔瓦多 – 支持金融包容性的法律要求：核实受监管实体 RBA 和简化储蓄账户的开户

El Salvador has adopted several measures to support financial inclusion:
萨尔瓦多已采取多项措施支持金融包容性：

1. El Salvador has implemented an RBA to AML/CFT158
1. 萨尔瓦多已实施反洗钱和反恐怖融资法规（RBA）第 158 号:

• Regulated entities must identify, evaluate and understand their ML/TF/PF risks, adopt proportionate mitigating measures and apply relevant resources to them.
• 受监管实体必须识别、评估和理解其洗钱/恐怖融资/恐怖融资（ML/TF/PF）风险，采取与其风险程度相适应的缓解措施，并分配相关资源。

• The supervisory authorities may (i) verify the effectiveness of the supervised entities’ prevention and detection programmes159 and may
• 监管机构可以（i）验证受监管实体的预防和检测计划的有效性 159，并可以

(ii)review the ML/TF/PF risk profiles and the risk assessments prepared by the regulated entities to evaluate whether simplified measures or exemptions (in case ofa proven low risk) have been applied in compliance with the law.
（ii）审查受监管实体制定的 ML/TF/PF 风险概况和风险评估，以评估是否已根据法律规定应用了简化措施或豁免（在已证明风险较低的情况下）。

2. 萨尔瓦多在其法律框架中纳入了一项 LSO，即开设 “简化储蓄账户”的简化制度 ，允许 客户存款通过各种渠道160

• They can be opened through (i) electronic channels or media, (ii) financial correspondents, or (iii) banking agents, and the agents of savings and credit societies.
• 可以通过 (i) 电子渠道或媒体， (ii) 金融代办性质机构，或 (iii) 银行代理人以及储蓄和信贷协会的代理人进行开户。

• The following information must be collected when opening the account: name of the holder, unique identity document number, residence address,
• 开户时必须收集以下信息：持有人姓名、唯一身份文件编号、居住地址，

economic activity, origin of monthly income, name and residence address of the beneficiaries.
经济活动、月收入来源、受益人的姓名和居住地址。

• The accounts are subject to several restrictions: (i) The holder can only be a natural person, (ii) there may not be more than one holder per account, (iii) each holder can only hold one account in each financial service provider; and (iv Balance and transactional limits are determined every two year by the Central Reserve Bank based on economic factors.
• 这些账户受到多项限制：(i) 持有人只能是自然人，(ii) 每个账户不得有多于一名持有人，(iii) 每位持有人在每个金融机构只能持有一个账户；以及 (iv) 中央储备银行根据经济因素，每两年确定一次余额和交易限额。

• A notable outcome of this measure is that in June 2024, the total number of savings accounts reached 138 924 held by women and 159 294 held by men in El Salvador.
• 该措施的一个重要成果是，到 2024 年 6 月，萨尔瓦多的储蓄账户总数达到 138,924 个，由女性持有，以及 159,294 个，由男性持有。

Box 4.3. European Union – Limited products and services for asylum seekers from high- risk third countries or territories
框 4.3. 欧盟 – 对来自高风险第三国家或地区的庇护申请人的有限产品和服务

(See also Box 6.2 on the use of asylum seeker’s official documentation as an identification method for bank account opening).
（另见框 6.2 关于将庇护申请人的官方文件用作银行开户身份验证方法的使用）。

In the European Union, the European Banking Authority issued an Opinion in April 2016 which clarifies how CDD measures can be adapted to facilitate financial inclusion of asylum seekers from higher risk countries or territories, while maintaining robust AML/CFT controls.
在欧盟，欧洲银行管理局于 2016 年 4 月发布了一份意见，该意见阐明了如何调整尽职调查措施，以促进来自高风险国家或地区的庇护申请人的金融包容性，同时保持稳健的反洗钱/反恐怖融资控制。

The Opinion takes the view that the ML/TF risks associated with asylum seekers from third (non-European Union) countries are unlikely to be lower, due to a combination of factors, including the robustness or trustworthiness of the applicants’ identity documentation and the higher risk third (non-European Union) countries or territories of origin. As a result, a SDD regime has not been set out at European Union level. However, the European Banking Authority has clarified how CDD measures can be adapted to facilitate financial inclusion, while maintaining proportionate and solid AML/CFT controls.
该意见认为，由于多种因素，包括申请人身份文件的可靠性和来源国或地区的高风险性，来自第三国（非欧盟国家）的庇护申请人与洗钱/恐怖融资相关的风险不太可能降低。因此，在欧盟层面尚未设立特殊尽职调查制度。然而，欧洲银行管理局已阐明如何调整尽职调查措施，以促进金融包容性，同时保持适度且坚实的反洗钱/反恐怖融资控制。

The European Banking Authority mentions examples of limits FIs might impose on a risk-sensitive basis:
欧洲银行管理局提到了金融机构可能基于风险敏感原则施加的限制示例：

• no provision of credit or overdraft facilities,
• 不提供信贷或透支额度

• monthly turnover limits (unless the rationale for larger or unlimited turnover can be explained and justified),
• 月度交易限额（除非能说明并证明较大或无交易限额的合理性）,

• limits on the amount of person-to-person transfers (additional or larger transfers are possible on a case-by-case basis),
• 限制个人间转账金额（在个案基础上可进行额外或较大额转账）,

• limits on the amount of transactions to and from third (non-European Union) countries (while considering the cumulative effect of frequent smaller value transactions within a set period of time), in particular where these third (non- European Union) countries involved are associated with higher ML/TF risk,
• 限制与第三国（非欧盟）之间交易的金额（同时考虑在特定时间段内频繁小额交易的累积效应），特别是在这些第三国（非欧盟）与较高洗钱/恐怖融资风险相关联时,

• limits on the size of deposits and transfers from unidentified third parties, in particular where this is unexpected, and
• 限制不明第三方存款和转账的金额，特别是在这种情况出乎意料时,

• prohibiting cash withdrawals from third (non-European Union) countries.
• 禁止从第三国（非欧盟国家）提取现金。

Box 4.4. France – The Banque de France to nominate a credit institution to open an
框 4.4. 法国 – 法国银行将指定一家信用机构开设

account with basic banking services and caps for eligible individuals denied of banking service
一个具备基本银行服务且对符合条件的个人设有银行服务限制的账户

France has put in place a regulatory framework and a guidance to support financial inclusion through the right to a bank account. This measure ensures that:
法国已建立监管框架和指导方针，通过银行账户权支持金融包容性。这项措施确保：

1. any natural or legal person domiciled in France,
1. 任何居住在法国的自然人或法人，

2. any natural person of French nationality residing outside France, and
2. 任何居住在法国境外的法国国籍自然人，以及

3. any natural person of foreign nationality legally resident in the territory of another European Union Member State and not acting for business purposes,
3. 任何具有外国国籍并在另一个欧盟成员国领土上合法居住且非以商业为目的的自然人。

can benefit from the opening of a bank account. In case of refusal, the Banque de France designates a credit institution, that is under the obligation to open an account for this person featuring basic banking services and caps.
可以从开设银行账户中受益。如果被拒绝，法国银行将指定一家金融机构，该机构有义务为这个人开设账户，提供基本的银行服务，并设定上限。

The AML/CFT obligations apply to these business relationships in the same way as to other business relationships. Furthermore, the limitation of the services offered is a factor in reducing the potential ML/TF risk. A guidance helps credit institutions understand the specific risks associated with these business relationships.
反洗钱/反恐怖融资义务适用于这些业务关系，与其他业务关系相同。此外，提供的服务限制是降低潜在洗钱/恐怖融资风险的因素。指导有助于金融机构了解这些业务关系相关的具体风险。

Box 4.5. Hong Kong, China – Simple Bank Accounts with narrower service scope and lower transaction volume
框 4.5. 中国香港——服务范围较窄、交易量较低的简易银行账户

In April 2019, the Hong Kong Monetary Authority announced the introduction of Simple Bank Accounts by banks as a measure to promote financial inclusion and to provide corporate customers with more choices.
2019 年 4 月，香港金融管理局宣布银行将推出简易银行账户，作为促进金融包容性并为企业客户提供更多选择的措施。

Simple Bank Accounts are a tier of accounts derived from traditional bank accounts, focusing on provision of basic banking services such as deposits, withdrawals, local and cross-border remittances, etc.
简易银行账户是从传统银行账户衍生出来的一种账户层级，专注于提供基本的银行服务，如存款、取款、本地及跨境汇款等。

Compared to traditional bank accounts, Simple Bank Accounts have a narrower service scope and lower transaction volume, so the risks involved in Simple Bank Accounts would be relatively lower and hence less extensive CDD measures are required. For instance, banks may require less detailed information and supporting documents from applicants.
与传统银行账户相比，简易银行账户的服务范围较窄，交易量较低，因此涉及的风险相对较低，因此所需的尽职调查措施也相对较少。例如，银行可能对申请人要求的信息和支持文件要求不那么详细。

Individual banks have the flexibility to design their own Simple Bank Accounts based on their business strategies and risk assessments, so the scope of services of Simple Bank Accounts offered and the extent of CDD measures may vary across different banks. Simple Bank Accounts customers who require more comprehensive banking services in the future may upgrade their accounts to traditional bank accounts by completing the standard CDD process.
各家银行可以根据其业务战略和风险评估灵活设计自己的简易银行账户，因此不同银行提供的简易银行账户的服务范围以及尽职调查措施的 extent 可能会有所不同。未来需要更全面银行服务的简易银行账户客户可以通过完成标准的尽职调查流程将账户升级为传统银行账户。