2026年反洗钱峰会演讲
新西兰司法部长 Nicole McKee
各位早上好，热烈欢迎大家的到来。
很高兴再次参加这一年一度、聚焦“反洗钱（AML）”议题的盛会。
感谢 AML Solutions 再次把大家聚集在一起。每年让反洗钱专家和合规同行齐聚一堂，共同讨论制度变化与行业创新，本身就值得肯定。再次感谢邀请我参与此次峰会。
今年大会的主题是：
“为各类机构提供实用洞察——帮助相关机构将复杂要求转化为清晰、可执行、真正改善日常合规工作的步骤。”
这个主题非常准确。
因为长期以来，“法规要求”与“实际合理操作”之间存在过大的落差。而我今天来到这里，就是为了改变这种情况。
我想先讲一个故事。
今年早些时候，我参加了一个前往拉丁美洲的贸易代表团，推广新西兰作为一个安全、值得信赖的投资和商业目的地。正如各位所知，一个强大且高效运作的反洗钱体系，是这项宣传的重要组成部分。
但在出发前，我去兑换外币。
柜台工作人员并不知道我是谁，他一边不停地为繁琐的手续道歉，一边把责任归咎于反洗钱法规。他显得很尴尬。
后来他问我，是否和之前来办理业务的几位国会议员同行。我说是的。
他又问我是做什么工作的，我回答说：
“我是负责反洗钱法律事务的部长。”
他笑了，并问我的“真正工作”是什么。
当他意识到我是认真的之后，又再次向我道歉。
而我对他说：
“不，其实应该是我向你道歉。但我们正在改革。希望下次我再来时，你能感谢我，而不是抱怨这些规定。”
那次对话让我印象深刻。
因为那位工作人员并不是在抱怨打击金融犯罪，而是在抱怨那些对任何人都没有帮助、尤其无法阻止犯罪分子的繁琐文书工作。而他说得没错。
在座各位比任何人都更了解这一点。
多年来，你们一直在艰难推进反洗钱合规工作，却仿佛“被绑住一只手”工作一样困难。
三个监管机构给出不一致的指导意见。
法规无法根据风险程度灵活调整。
整个体系甚至会用对待高额国际转账的怀疑态度，去审查一个儿童储蓄账户的开户申请。
我相信，在座不少人都有属于自己的“外币兑换故事”。
所以，我想告诉大家，我们目前走到了哪一步。
自从去年与大家交流以来，我很高兴地报告，我们对反洗钱与反恐融资（AML/CFT）体系的改革已经取得重大进展。
我们即将迎来一个根本性的结构改革，彻底改变企业被监管与获得支持的方式。
新的体系将更专注于真正发现犯罪、打击街头犯罪，而不是把大量精力浪费在低风险交易上——那些交易实际上并不能打击犯罪。
这个体系的目标，是让你们的工作更加有效、更聚焦，而且坦率地说，更加合理。
大家都知道，目前的法律和合规要求极其复杂、耗时，而且并未真正体现“基于风险”的原则。
而我的立法改革，正是在大幅改善这一问题。
我们已经完成的改革
《法规修正法案》已于去年11月正式生效，并立即解决了一系列企业长期面临的痛点。
例如，对于低风险客户，企业不再需要进行严格的地址验证。
这看似只是一个简单改变，但对于一位因为没有水电账单、而无法以自己名义开设银行账户的老年寡妇来说，这意义重大——过去这些事务一直由她丈夫处理。
我希望你们以及你们的客户，已经感受到这项修法带来的便利。
这是未来一系列“常识化合规改革”的第一步，也是削减不必要繁文缛节的重要开始。
正在推进中的改革
接下来的两项修正法案预计将在本周正式通过。
我原本希望在峰会召开前完成所有程序。事实上，法案三读辩论已经接近尾声——议会在四月休会前，12位议员中已有10位完成发言。
好消息是，所有政党都已表示支持，因此这些改革距离正式落地已经非常接近。请大家继续关注。
第一项法案是《AML/CFT修正法案》。
其中包括多项改革，例如：
- 放宽对低风险家族信托的客户尽职调查要求；
- 取消重复性的边境现金申报要求——如果现金已由他人携带进入新西兰，接收者无需再次申报。
这些改变将在法案通过后立即生效。
第二项法案《AML/CFT监管与征费修正法案》，则是真正具有历史意义的结构性改革。
根据该法案，从2026年7月1日起，Department of Internal Affairs（内政部，DIA）将成为唯一的反洗钱监管机构。
稍后今天上午，DIA 将向大家进一步介绍其战略方向变化。
我相信，从“三个监管机构”整合为“一个监管机构”，将为行业和客户带来更大的清晰度与一致性。
我很荣幸能够推动这项改革，建立一个更高效、更有效、更加基于风险的监管结构。
这一结构将：
- 降低低风险企业和交易的合规成本；
- 避免多个监管机构重复监管；
- 提供更一致、更及时的行业指导；
- 更灵活地应对不断变化的风险环境。
未来一年，我们将看到一个资源更充足、反应更迅速的单一监管体系，更好地支持站在打击洗钱第一线的企业。
关于行业征费（Levy）
法案的第二部分，顾名思义，就是行业征费制度。
许多企业已经针对征费设计与结构提供了反馈，我对此表示感谢。
官员们过去一个月一直在分析行业意见，并总结主要关注点。
我已经收到初步建议，并可以确认：行业反馈已被纳入政策考虑范围，并在可行情况下予以采纳。
未来几周，我将与内阁同僚讨论最终方案。
除了加强监管之外，这项征费还将用于：
- 投资更强大的情报能力；
- 为行业提供更优质的指导支持。
缴纳征费的行业机构，也将更积极参与塑造反洗钱体系未来的发展方向，以及征费资金的使用方式。
监管体系将更加灵活
法案第三部分，旨在更新那些僵化、低效的监管规定。
有组织犯罪集团正变得越来越“创新”，不断利用新技术和新手段超越监管。
与此同时，现行法规却未能跟上科技和行业变化。
如果企业被迫遵循已经落后的僵硬规则，创新就会被扼杀。
这不仅阻碍企业发展，也影响国家经济。
因此，该法案将允许监管机构通过“规则”和“通知”等次级立法形式，更快速调整监管要求。
这样一来，体系将变得更加灵活、更能适应不同风险水平和行业需求。
下一阶段改革
目前，我们仍在推进第四项、也是最后一项 AML/CFT 法案。
该法案将包括：
- 进一步减轻客户尽职调查负担；
- 对定向金融制裁实施监管监督；
- 更新金融情报部门（FIU）的权力；
- 改革犯罪与处罚制度；
- 修改指定业务集团（DBG）要求。
我的计划是在本届议会任期后期，将该法案提交议会审议。
国家战略（National Strategy）
接下来谈谈我今年2月发布的《国家战略》。
这项新战略将于今年7月1日正式生效，为未来四年的反洗钱工作制定清晰方向。
在座许多人也参与了该战略的制定，在此向大家致谢。
它明确列出政府的优先事项与目标，并确保体系更好服务于企业与行业。
未来四年内，Ministry of Justice、内政部和新西兰金融情报部门将与行业合作，共同落实这项工作计划。
AML 对新西兰经济安全至关重要
这些改革不仅能减少企业繁文缛节，更将在宏观层面增强新西兰经济安全。
一个高效运作的反洗钱体系，对于：
- 国际贸易；
- 海外投资；
- 国际市场准入；
- 国际银行合作
都至关重要。
大家都知道，遵守国际标准，对新西兰的全球声誉和金融地位极其重要。
Financial Action Task Force（金融行动特别工作组，FATF）的国际标准正变得越来越严格。
其他成员国也正在要求本国企业，只与符合相同标准的国家开展贸易与投资。
因此，新西兰绝不能落后。
我们必须在全球打击有组织犯罪、洗钱和恐怖融资中承担责任。
政府与行业共同打击金融犯罪
最后，我认为，成功推进 AML/CFT 改革的关键，是合作，以及充分利用你们的专业经验。
新的混合融资模式，为政府与行业共同打击金融犯罪建立了新的合作平台。
没有任何一个机构、监管者或企业，能够单独完成这项工作。
只有合作，我们才能取得更好的成果。
因此，《国家战略》以及新融资模式下的改革成果，都将受到严格监督与评估，以确保真正有效，并让所有参与者受益。
你们将在其中扮演重要角色。
因为你们最了解：
- 客户行为；
- 交易模式；
- 新兴风险。
最后，再次感谢大家持续为建设“既方便合法经营、又让犯罪无所遁形”的反洗钱体系所作出的贡献。
我感到非常自豪，这项改革计划有望成为自2013年《反洗钱法》实施以来，最重大的监管减负改革。
也希望下一次我去兑换外币时，柜台后的工作人员不再需要向我道歉。
今天很高兴与大家交流，祝各位在接下来的峰会活动中一切顺利。
谢谢大家。
Good morning and a warm welcome to everyone.
I’m delighted to be back here at this annual immersion of all things Anti-Money Laundering.
My thanks to AML Solutions for bringing you all together again. Having the AML experts and AML compliance peers in one room to discuss changes and innovations each year is worthy of acknowledgment. Thanks again for inviting me to be a part of it.
This year’s conference theme is “Practical Insights for Every Organisation – supporting entities to turn complex requirements into clear and actionable steps that make a real difference in everyday compliance”.
The theme is exactly right. Because for too long, the gap between what the rules require and what actually makes sense has been too wide. That’s what I’m here to fix.
I want to begin with a story.
Earlier this year I was part of a trade delegation to Latin America – promoting New Zealand as a safe, trusted place to invest and do business. A strong, well-functioning, AML system is a big part of that pitch, as you all know.
But before I left, I went to get some foreign currency.
The person at the exchange counter, who had no idea who I was, kept apologising for all the paperwork and blaming the AML rules. He was embarrassed by it.
Then he asked if I was travelling with some other MPs who’d been through earlier. I said yes.
He asked what I did and I said: “I’m the Minister responsible for AML laws.”
He laughed. And asked what my real job was.
When he realised I was serious, he apologised again.
And I said: “No – I should be the one apologising. But we’re fixing it. Hopefully next time I come through, you’ll be able to thank me instead.”
That exchange has stuck with me. Because that man wasn’t complaining about fighting financial crime. He was complaining about paperwork that made no difference to anyone, least of all criminals. And he was right.
The people in this room know that better than anyone. You’ve been doing the hard work of AML compliance for years, often with one hand tied behind your back.
Three supervisors giving inconsistent guidance. Rules that didn’t flex with risk. A system that treated opening a child’s savings account with the suspicion that could only be reasonably expected from a high-value international transfer.
I suspect a few of you have your own versions of that currency exchange story.
So let me tell you where we are at.
Since speaking to you all a year ago, I’m pleased to report that our reforms of the AML/CFT system are making great progress. We are on the cusp of making a fundamental structural change to how businesses are supervised and supported.
The system will be more focused on making a difference in detecting and getting crimes off our streets, with less effort on low-risk transactions that do nothing to fight crime. It’s designed to make your jobs more effective, more focused, and frankly, more rational.
You all know that our laws and requirements are highly complex, time-consuming and fail to take a truly risk-based approach. My legislative reforms are making leaps and bounds to address this.
What we’ve already done
The Statutes Amendment Bill came into law last November and made immediate changes to address a number of pain points for businesses. Businesses no longer have to complete strict address verification on low-risk customers.
It’s a straightforward change, but for the elderly widow who couldn’t open a bank account in her own name because she had no utility bills, her husband had always handled that, it matters enormously.
I hope you and your customers are already seeing the benefits of this amendment too. This is the first of many changes being made to take a common-sense approach to compliance, and cutting unnecessary red tape.
What’s happening right now
The next two amendment bills are due to pass into law this week.
I had hoped to have them completed before the Summit. In fact, the third reading debate is already well underway – we got through 10 of the 12 speeches before Parliament rose at the end of the last sitting block in April.
The good news is that all parties have signalled their support, so we’re very close to getting these reforms over the line. Watch this space.
The first of those amendment Bills, is the AML/CFT Amendment Bill, it introduces a number of changes, including relaxing customer due diligence requirements for lower-risk family trusts. This Bill also removes the requirement for people to submit a border cash report if they have received cash from someone who physically moved the cash into New Zealand, as this is needless duplication.
These changes will come into effect immediately following the law passing.
The second amendment Bill, the AML/CFT Supervisor and Levy Amendment Bill, is where the reforms are really getting down to business. This amendment will represent the biggest reform in the history of the AML/CFT regime and focuses on structural changes.
Under this law, the Department of Internal Affairs will become the single supervisor of all AML supervisory functions from 1 July 2026. I will leave DIA to talk to you more, later on this morning, about the strategic shifts they will be making.
I am confident the transition from three supervisors to one supervisor will create greater clarity and consistency for industry and ultimately customers
I’m honoured to be leading this change to create a more efficient, effective, and risk-based supervisory structure – one that reduces unnecessary compliance costs for lower-risk businesses and transactions, and removes the need for multi-supervisor efforts.
Over the next year, we will see a single supervisor that is more responsive to ever-changing risks, and better resourced to deliver consistent and timely guidance to support businesses on the front line, where money laundering is happening. With a holistic view across the AML/CFT supervisory environment, DIA will be able to look for and realise opportunities as they arise.
The second component of the Supervisor and Levy Bill, as the name implies, is the levy.
Many of you will have provided feedback on the early design and, more recently, the detailed proposed structure of the levy. Thank you for your input. It’s important for officials and me to hear your perspectives.
Officials have spent the past month analysing the submissions and picked out the key themes from their engagements with you. I have received initial advice and can confirm that industry feedback was reflected in that advice and incorporated where practicable. I am looking forward to discussing the final recommendations with my Cabinet colleagues over the next weeks.
As well as enhanced supervision, the levy will pay for resources to invest in better intelligence that will enhance guidance to industry.
Those entities who do end up paying the levy will have a more active role in shaping the performance and direction of the AML system and how the levy is used. This will be based on annual reporting from the Ministry of Justice and regular industry engagements as we turn our attention to developing the next National Strategy from 2031.
The third component of the Supervisor and Levy Bill updates inflexible regulation that can result in ineffective use of our resources and undetected crime. Organised crime syndicates are becoming increasingly innovative, using new methods and emerging technologies to outpace regulation.
Likewise, regulations are not keeping pace with advances in technology and developments within industries. If businesses are following rigid compliance rules that don’t keep up with the times or changes in risk, innovation gets stifled.
That gets in the way of business growth and our economy. This Bill will allow agencies to make regulatory changes through alternative forms of secondary legislation such as rules and notices. This will make the system much more agile and responsive to different levels of risk and the changing needs of industry.
Still to come is the fourth and final AML/CFT bill I have instructed officials to develop to deliver further regulatory relief, wider legislative changes to implement international standards required by the Financial Action Task Force, and support law enforcement to tackle organised crime.
Some of the amendments in this Bill will include:
Reforms to reduce the burden of customer due diligence checks
Providing regulatory supervision of existing requirements for targeted financial sanctions
Changes to FIU powers and the offences and penalty regime to ensure they are fit for purpose; and
changes to Designated Business Group requirements.
My plan is to introduce this Bill to the House later this Parliamentary term.
National Strategy
Turning my attention now to the National Strategy which I released in February this year. This new National Strategy sets out a four-year work programme and vision for our AML system. The Strategy comes into effect from 1 July this year.
Many of you here today have shaped the development of this document too. Thank you.
It sets a clear direction for the Government’s priorities and objectives, and importantly ensures that the system works better for you and your businesses.
The activities in the work programme and wider reforms will be partly funded by the new industry levy. Government contributions most certainly remain. You have been telling Government for some time that the system is not meeting your needs, and requires more funding and resource.
The National Strategy lays out our response. Over the next four years, the Ministry of Justice, Internal Affairs and the New Zealand Financial Intelligence Unit will deliver the work programme, in partnership with industry.
I’ll be handing over to the Ministry of Justice shortly to tell you more about this important National Strategy and its delivery.
AML is vital to New Zealand’s economic security
While these reforms make tangible changes to cut red tape for individual businesses and customers, at the macro level, the changes make a major contribution to our economic security.
A well-functioning AML system is vital for supporting trade, overseas investment and access to international markets and international banking partners.
You will know that compliance with international standards is incredibly important for our global reputation and financial standing. The Financial Action Task Force’s standards apply globally and are becoming tougher.
Other FATF member countries are implementing measures to ensure their businesses trade and invest only with countries that maintain comparable standards.
This sets a strong expectation that New Zealand meets these new international standards in the context of our country’s context and risks. We cannot be left behind. We must do our part in the global fight of organised crime, money laundering and terrorist financing.
Government and industry joined up to tackle financial crime
Finally, for me, the key to successfully strengthening the AML/CFT system through these reforms is collaboration and leveraging your expertise. We need people like you who have the experience and knowledge to get involved.
The new hybrid funding model creates a new platform for Government and industry to work together to tackle financial crime.
No single agency, regulator or business can do this in isolation from each other. We’ll achieve better results if we work in partnership.
That’s why the National Strategy and what it’s delivering under the new funding model will be under the microscope and closely monitored to ensure what we are delivering, works for everyone and is achieving results.
You will have an important role to play in shaping these results with your first-hand visibility of customer behaviours, transaction patterns and emerging risks.
Once again, thank you for your ongoing contribution to our shared vision of an AML system that makes it easy to do business and hard to commit crime.
I am excited and proud that this reform programme is on track to deliver the most significant regulatory relief since the Act came into force in 2013.
And next time I go to get foreign currency before a trip – I’m hoping the person behind the counter doesn’t need to apologise.
It’s been a pleasure to talk to you today, and I hope you enjoy the remainder of the Summit.
Thank you.
