Financial Crimes Enforcement 

Network

FY 2016

President’s Budget

February 2, 2015
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Table of Contents

Section 1 – Purpose ....................................................................................................................... 3

1A – Mission Statement.............................................................................................................. 3

1.1 – Appropriations Detail Table .............................................................................................. 3

1B – Vision, Priorities and Context............................................................................................ 3

Section 2 – Budget Adjustments and Appropriation Language............................................... 6

2.1 – Budget Adjustments Table................................................................................................. 6

2A – Budget Increases and Decreases Description..................................................................... 6

2.2 – Operating Levels Table...................................................................................................... 7

2B – Appropriations Language and Explanation of Changes..................................................... 8

2C – Legislative Proposals.......................................................................................................... 8

Section 3 – Budget and Performance Plan ................................................................................. 9

3A – BSA Administration and Analysis..................................................................................... 9

3.1.1 – BSA Administration and Analysis Budget Activity Budget and Performance Plan .... 11

Section 4 – Supplemental Information...................................................................................... 12

4A – Summary of Capital Investments..................................................................................... 12
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Section 1 – Purpose

1A – Mission Statement

The mission of the Financial Crimes Enforcement Network (FinCEN) is to safeguard the 

financial system from illicit use, and combat money laundering and promote national security 

through the collection, analysis, and dissemination of financial intelligence and strategic use of 

financial authorities.

1.1 – Appropriations Detail Table

Dollars in Thousands

Financial Crimes Enforcement Network FY 2014 FY 2015 FY 2016 FY 2015 to FY 2016

Appropriated Resources Enacted Enacted Request $ Change % Change

 FTE AMOUNT FTE AMOUNT FTE AMOUNT FTE AMOUNT FTE AMOUNT

New Appropriated Resources:

BSA Administration and Analysis 345 112,000 345 112,000 343 112,979 (2) 979 -0.58% 0.87%

Subtotal New Appropriated Resources 345 $112,000 345 $112,000 343 $112,979 (2) $979 -0.58% 0.87%

Other Resources:

Reimbursables 1 2,000 1 3,000 1 3,000 0 0 0.00% 0.00%

Recovery from Prior Years 0 500 0 500 0 500 0 0 0.00% 0.00%

Unobligated Balances from Prior Years 0 41,000 0 50,000 0 50,000 0 0 0.00% 0.00%

Subtotal Other Resources 1 $43,500 1 $53,500 1 $53,500 0 $0 0.00% 0.00%

Total Budgetary Resources 346 $155,500 346 $165,500 344 $166,479 (2) $979 -0.58% 0.59%

1B – Vision, Priorities and Context

In carrying out its mission, FinCEN has numerous statutory areas of responsibility: developing 

and issuing regulations under the Bank Secrecy Act (BSA); enforcing compliance with the BSA 

in partnership with law enforcement and other regulatory partners; serving as the U.S. Financial 

Intelligence Unit (FIU) and maintaining a network of information sharing with FIUs in more 

than 130 partner countries; receiving millions of new financial reports each year; securing and 

maintaining a database of over 170 million reports; and analyzing and disseminating financial 

intelligence to federal, state, and local law enforcement, federal and state regulators, foreign 

FIUs, and industry; and bringing together the disparate interests of law enforcement, FIU, 

regulatory partners, and industry.

FinCEN designs its BSA regulatory defenses to protect national security and safeguard the 

financial system. The nation’s financial institutions execute these defenses on a daily basis. 

This strong public-private partnership is critical in protecting the financial system from money 

laundering and other illicit activity. FinCEN is a leader in the analysis of the BSA data and 

dissemination of financial intelligence. This capability is now further strengthened by BSA IT 

Modernization, allowing FinCEN’s highly skilled analysts to enhance BSA analysis and 

integration with other information. In addition, FinCEN is also expanding its BSA enforcement 

efforts to employ an intelligence-driven approach focusing on high-risk illicit use of the financial 

system. FinCEN will proactively investigate persons and entities that violate the BSA using a 

wide range of enforcement tools. 
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FinCEN is a bureau in the U.S. Department of the Treasury. FinCEN directly supports the 

Department’s strategic goal to “Safeguard the financial system and use financial measures to 

counter national security threats.” The Director of FinCEN reports to the Under Secretary for 

Terrorism and Financial Intelligence (TFI). FinCEN supports the following Treasury strategic 

objectives: 4.1 Identify priority threats to the financial system using intelligence analysis and 

outreach to the financial sector; 4.2 Develop, implement, and enforce sanctions and other 

targeted financial measures; and 4.4 Protect the integrity of the financial system by 

implementing, promoting, and enforcing anti-money laundering and counterterrorism financing 

standards.

FinCEN’s activities and efforts are linked to Treasury’s strategic goal, the above-mentioned

Treasury strategic objectives, and the following bureau strategic goals:

• Safeguard the financial system from evolving money laundering and national security 

threats; and

• Maximize the sharing of financial intelligence between FinCEN and its domestic and foreign 

partners in government and private industry.

FinCEN also supports the Agency Priority Goal (APG) to employ a proactive, intelligence 

driven approach to focus enforcement efforts against high priority threats by September 30, 

2015. This goal is aligned to Treasury strategic objective 4.4. FinCEN will leverage new 

technology, FinCEN data, analytical resources, tools, and methodologies to identify high 

priority threats compromising the financial system. FinCEN will use this intelligence to 

focus its own enforcement efforts against high priority threats, and assess civil monetary 

penalties, impose injunctions, issue special measures under Section 311 of the USA 

PATRIOT Act, and apply geographic targeting orders, as appropriate. FinCEN will also 

use this intelligence to help focus the enforcement actions of partner law enforcement and 

regulatory agencies in the U.S. and abroad. 

FinCEN’s priorities include:

• Target examination and enforcement efforts to high priority areas;

• Expand understanding and analysis of illicit networks, institutions, jurisdictions, and 

schemes; 

• Ensure the BSA regulatory structure effectively and efficiently targets illicit financing 

risks; 

• Manage the efficient collection, processing, and retrieval of BSA data; and

• Foster strong public-private partnerships with the financial industry.

FinCEN’s accomplishments in FY 2014 include:

• Issued advisories to help Ukraine combat corruption and recover stolen assets;

• Issued two administrative rulings that expanded upon guidance to clarify applicability of 

BSA to administrators and exchangers of convertible currency and provided reference 

information to partners on emerging payment systems; 

• Issued guidance that clarifies reporting and customer due diligence expectations for 

financial institutions seeking to provide services to marijuana businesses;

• Identified 517 crypto-currencies in various stages of development, including some with 

novel technological developments that FinCEN is currently assessing. FinCEN continues to 
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track entity ownership, jurisdiction, Internet Protcols, and other information globally from 

BSA data and open source data. FinCEN also tracks new currencies in development, their 

developers, and their exchangers;

• Provided immediate and sustained analytic support to the FBI and DOJ for ongoing efforts 

to stem capital flight from Ukraine;

• Continued support of high priority health and tax fraud investigations, including 

identification of key links to third-party money launderers;

• Promoted voluntary use of 314(b) authorities. Section 314(b) of the USA PATROIT Act 

provides financial institutions with the ability to share information with one another, under 

safe harbor that offers protections from liability, in order to identify and report potential 

money laundering or terrorist activities; and

• Hosted a delegation of senior officials from the China Anti-money Laundering Monitoring 

and Analysis Center (CAMLMAC) and the Anti-money Laundering Bureau, the two offices 

that comprise FIU-China. A segment of the discussions focused on identifying next steps in 

CAMLMAC’s application for membership into the Egmont Group of FIUs.

To meet its priorities in FY 2015 and FY 2016, FinCEN will:

• Adopt strong anti-money laundering and counterterrorism financing (AML/CFT) regulatory 

safeguards;

1

• Implement and enforce AML/CFT regulatory authorities and employ targeted financial 

measures against priority threats;

• Use research, analysis, and advanced analytics to identify and explain priority threats to the 

financial system;

• Implement and manage programs to effectively network, coordinate, and share financial 

intelligence between FinCEN and its domestic and foreign partners in government and 

private industry1

; and

• Develop and support effective technology systems to collect and analyze financial 

intelligence from private industry and share it with domestic and foreign government 

partners.

In terms of the larger operating environment, FinCEN contributes to efforts across all levels of 

government to focus resources on various external factors that threaten the financial 

system. Some of these factors include cyber threats, transnational organized crime, fraud against 

U.S. government programs, and transnational security threats, such as rogue regimes and terrorist 

organizations. These are serious threats to the nation and the financial system that demand 

strong public-private sector partnerships to ensure the appropriate laws and regulations are in 

place, and to leverage resources in a fiscally responsible manner.

 1 Directly supports the Strategic Objective Annual Review (SOAR) next steps.
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Section 2 – Budget Adjustments and Appropriation Language

2.1 – Budget Adjustments Table

Dollars in Thousands

Financial Crimes Enforcement Network FTE Amount

FY 2015 Enacted 345 $112,000

Changes to Base:

Maintaining Current Levels (MCLs): - $1,896

Pay-Raise - $521

Pay Annualization - $133

FERs Contribution Increase - $191

Non-Pay - $1,051

Efficiency Savings: - ($726)

Efficiency Savings - ($726)

Subtotal Changes to Base - $1,170

FY 2016 Base 345 $113,170

Program Changes:

Program Decreases: (2) ($191)

Administrative Staffing Reduction (2) ($191)

Program Increases: - -

FY 2016 Request 343 $112,979

2A – Budget Increases and Decreases Description

Maintaining Current Levels (MCLs) ......................................................+$1,896,000 / +0 FTE

Pay-Raise +$521,000 / +0 FTE 

Funds are requested for the proposed January 2016 pay-raise.

Pay Annualization +$133,000 / +0 FTE 

Funds are requested for annualization of the January 2015 pay-raise.

FERS Contribution Increase +$191,000 / +0 FTE 

Funds are requested for an increase in agency contributions for Federal Employees Retirement 

System (FERS) employees.

Non-Pay +$1,051,000 / +0 FTE 

Funds are requested for inflation adjustments in non-labor expenses such as GSA rent 

adjustments, postage, supplies, and equipment

Efficiency Savings .........................................................................................-$726,000 / +0 FTE

Efficiency Savings -$726,000 / +0 FTE 

These efficiencies are a result of reductions in travel, printing, and savings realized through reevaluated or negotiated contracts.

Program Decreases ........................................................................................-$191,000 / -2 FTE

Administrative Staffing Reduction -$191,000 / -2 FTE 

FinCEN will redistribute the workload of two administrative positions lost through attrition.
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2.2 – Operating Levels Table

Dollars in Thousands

Financial Crimes Enforcement Network FY 2014 FY 2015 FY 2016

Object Classification Actual Enacted Request

11.1 - Full-time permanent 32,396 40,597 41,115

11.3 - Other than full-time permanent 362 408 408

11.5 - Other personnel compensation 486 205 205

11.9 - Personnel Compensation (Total) 33,244 41,210 41,728

12.0 - Personnel benefits 9,695 12,123 12,259

Total Personnel and Compensation Benefits $42,939 $53,333 $53,987

21.0 - Travel and transportation of persons 524 777 607

23.1 - Rental payments to GSA 4,835 4,304 4,380

23.2 - Rental payments to others 28 30 31

23.3 - Communication, utilities, and misc charges 1,720 1,629 1,649

24.0 - Printing and reproduction 72 263 200

25.1 - Advisory and assistance services 2,405 1,097 1,097

25.2 - Other services 14,685 15,129 14,864

25.3 - Other purchases of goods & serv frm Govt accounts 9,603 8,791 9,132

25.4 - Operation and maintenance of facilities 0 740 740

25.6 - Medical care 174 168 171

25.7 - Operation and maintenance of equip 20,931 18,535 18,629

26.0 - Supplies and materials 272 315 319

31.0 - Equipment 3,764 6,889 7,173

Total Non-Personnel 59,013 58,667 58,992

Subtotal New Appropriated Resources $101,952 $112,000 $112,979

Budget Activities:

BSA Administration and Analysis 153,417 165,500 166,479

Total Budgetary Resources1 $153,4171 $165,500 $166,479

 

FTE 280 346 344 1 FY 2014 Actual includes annual appropriations, available multi-year appropriations, reimbursable resources, offsetting collections,

and user fees.
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2B – Appropriations Language and Explanation of Changes

Appropriations Language Explanation of Changes

DEPARTMENT OF THE TREASURY

FINANCIAL CRIMES ENFORCEMENT NETWORK

Federal Funds

SALARIES AND EXPENSES:

For necessary expenses of the Financial Crimes Enforcement 

Network, including hire of passenger motor vehicles; travel 

and training expenses of non-Federal and foreign government 

personnel to attend meetings and training concerned with

domestic and foreign financial intelligence activities, law 

enforcement, and financial regulation; services authorized by 

5 U.S.C. 3109; not to exceed $10,000 for official reception 

and representation expenses; and for assistance to Federal law 

enforcement agencies, with or without reimbursement, 

[$112,000,000] $112,979,000, of which not to exceed 

$34,335,000 shall remain available until September 30, 

[2017] 2018. (Department of the Treasury Appropriations 

Act, 2015.)

2C – Legislative Proposals

FinCEN has no legislative proposals.
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Section 3 – Budget and Performance Plan

3A – BSA Administration and Analysis

($112,979,000 from direct appropriations, and $3,000,000 from reimbursable resources): 

The programs funded by this budget activity support Treasury Strategic Goal 4: “Safeguard the 

financial system and use financial measures to counter national security threats.” This activity 

comprises FinCEN’s efforts to develop and issue regulations under the Bank Secrecy Act (BSA); 

enforce compliance with the BSA in partnership with regulatory partners and as the sole BSA 

regulator across numerous industries; receive BSA reports and maintain a database; analyze and 

disseminate financial intelligence to federal, state, and local law enforcement, federal and state 

regulators, foreign FIUs, and industry; and serve as the U.S. FIU and maintaining network of 

information sharing with FIUs in partner countries. The goal owner for this budget activity is the 

Director of FinCEN. 

To support the Treasury Strategic Objective 4.4 and FinCEN Strategic Objective 1.1 to adopt 

strong AML/CFT regulatory safeguards, FinCEN tracked the percentage of users finding that 

financial intelligence collected by FinCEN pursuant to its regulations provides valuable 

information to safeguard the financial system, combat money laundering, and counter terrorist 

financing. The survey looks at the value of FinCEN data, such as whether the data provided 

unknown information, supplemented or expanded known information, verified information, 

helped identify new leads, opened a new investigation or examination, supported an existing 

investigation or examination, or provided information for an investigative or examination report. 

In FY 2014, 81 percent of users found the financial intelligence useful, which did not meet the 

target of 84 percent. To meet future targets FinCEN will put greater emphasis on both in-person 

and on-line training that will better assist users in understanding and utilizing the FinCEN Query 

tool for their unique cases and situations. Additionally, FinCEN will try to identify and address 

any agency specific issues that might have contributed to lower scores. This should result in at 

least 82 percent of the respondents finding value in BSA data in FY 2015 and 83 percent in 

FY 2016.

To support the Treasury Strategic Objectives 4.2 and 4.4 and FinCEN Strategic Objective 1.2 to 

implement and enforce AML/CFT regulatory authorities and employ targeted financial measures 

against priority threats, FinCEN tracked the percentage of AML/CFT supervisors who indicate 

that FinCEN’s enforcement actions have resulted in increased compliance by covered financial 

institutions. This measure examines the survey responses of state and federal financial 

regulatory agencies with information sharing agreements. The agreements require the financial 

regulators to share examination results and provide a variety of statistical data on their 

examination results. The survey asks the respondents to rate the impact of enforcement actions 

on the level of compliance observed by examiners. This is a meaningful measure of the link 

between enforcement actions and financial institution compliance with the BSA reporting. Lax 

financial institution compliance with the BSA would negatively impact the quality of the 

financial data and ability to safeguard the financial system from illicit activity. FinCEN set a 

baseline of 81 percent in FY 2014. In FY 2015 and 2016, targets are set at 80 percent until more 

trend data is available to better assess appropriate targets. 
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To support the Treasury Strategic Objective 4.1 and the FinCEN Strategic Objective 1.3 to use 

research, analysis, and advanced analytics to identify and explain priority threats to the financial 

system, FinCEN tracks the percentage of domestic law enforcement finding FinCEN’s analytic 

reports contribute to the detection and deterrence of financial crime. In FY 2014, FinCEN 

discontinued this measure as it found the measure does not represent the new analytical products.

FinCEN has increased its emphasis on the production of new products. 

To support the Treasury Strategic Objective 4.1 and the FinCEN Strategic Objective 2.1 to 

implement and manage programs to effectively network, coordinate, and share financial 

intelligence between FinCEN and its domestic and foreign partners in government and private 

industry, FinCEN measured the percentage of stakeholders finding FinCEN’s information 

sharing has contributed to their organization’s responsibilities. This measure examines the 

survey responses of customers who have had contact with FinCEN to exchange information, 

including industry, regulators, and law enforcement, both domestic and foreign. This is a new 

composite measure that consists of the following questions: Call center guidance response was 

understandable; rate the usefulness of the 314(a) requests FinCEN processed on behalf of your 

agency for investigations of financial crimes or money laundering; how satisfied are you with the 

information sharing you have with FinCEN; and over the past 12 months how satisfied are you 

with FinCEN. This is a meaningful measure as it tracks FinCEN’s efforts to share financial 

intelligence. FinCEN baselined the results of this measure in FY 2014 with 89 percent finding

information sharing valuable. FinCEN attributes this performance to high levels of satisfaction 

of domestic customers with the 314(a) program and responses received from regulatory Help 

Line calls. The FinCEN Resource Center will maintain this momentum through an intensive 

training program, rigorous quality control measures, and intra-agency coordination. The 314(a) 

Program will see improvements through outreach to targeted groups of financial institutions and 

FinCEN will enhance information sharing with industry, regulators, law enforcement and 

foreign Financial Intelligence Units (FIUs). In FY 2015 the target result of this measure is 89 

percent finding information sharing valuable and in FY 2016 the target is 90 percent.

To support the Treasury Strategic Objective 4.1 and the FinCEN Strategic Objective 2.2, develop 

and support effective technology systems to collect and analyze financial intelligence from 

private industry and share it with domestic and foreign government partners, FinCEN tracked the 

percentage of users satisfied with FinCEN information sharing systems. This is a composite 

survey measure and represents the users’ satisfaction with the BSA E-Filing System, FinCEN 

Portal and Query, and the Egmont Secure Web. Starting with industry, FinCEN collects and 

maintains BSA reports filed by financial institutions and other filers. In turn, FinCEN provides 

authorized users (including Treasury and TFI) access to a query system containing 11 years of 

BSA data; and provides foreign FIUs in the Egmont Group with a secure system for exchanging 

financial intelligence to combat money laundering and terrorist financing. This measure is 

meaningful because the technology allows authorized persons to more readily access BSA 

information and better enable them to conduct investigations more efficiently and effectively. In 

FY 2014 the baseline score was 78 percent of users were satisfied with FinCEN’s information 

sharing systems. FinCEN attributes this to performance to high levels of satisfaction with the 

Egmont Secure Web (ESW) that shares information with foreign FIUs and the E-Filing system 

used to submit financial reports. To meet future targets FinCEN will work with its query users to 
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improve satisfaction with this system. The FY 2015 target is 78 percent and FY 2016 is 80

percent.

3.1.1 – BSA Administration and Analysis Budget Activity Budget and Performance Plan

Dollars in Thousands

BSA Administration and Analysis Budget Activity

Resource Level FY 2009 FY 2010 FY 2011 FY 2012 FY 2013 FY 2014 FY 2015 FY 2016

Enacted Enacted Enacted Enacted Enacted Enacted Enacted Request

 Appropriated Resources $91,465 $111,010 $110,788 $110,788 $104,993 $112,000 $112,000 $112,979

 Reimbursable Resources $8,000 $20,000 $20,000 $20,000 $3,000 $2,000 $3,000 $3,000

Budget Activity Total $99,465 $131,010 $130,788 $130,788 $107,993 $114,000 $115,000 $115,979

Measure FY 2009 FY 2010 FY 2011 FY 2012 FY 2013 FY 2014 FY 2015 FY 2016

Actual Actual Actual Actual Actual Actual Target Target

Percentage of AML/CFT 

Supervisors Who Indicate That 

FinCEN’s Enforcement Actions 

Have Resulted in Increased 

Compliance by Covered 

Financial Institutions

N/A N/A N/A N/A N/A 81.0 80.0 80.0

Percentage of domestic law 

enforcement finding FinCEN’s 

analytic reports contribute to the 

detection and deterrence of 

financial crime

N/A 80.0 86.0 83.0 81.0 Disc Disc Disc

Percentage of Stakeholders 

Finding FinCEN’s Information 

Sharing Has Contributed to 

Their Organization’s 

Responsibilities

N/A N/A N/A N/A N/A 89.0 89.0 90.0

Percentage of Users Finding 

That the Financial Intelligence 

Collected by FinCEN Pursuant 

its Regulations Provides 

Valuable Information to 

Safeguard the Financial 

System, Combat Money 

Laundering, and Counter 

Terrorist Financing

N/A 87.0 89.0 90.0 80.0 81.0 82.0 83.0

Percentage of Users Satisfied 

with FinCEN Information 

Sharing Systems

N/A N/A N/A N/A N/A 78.0 78.0 80.0

Key: DISC - Discontinued and B – Baseline
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Section 4 – Supplemental Information

4A – Summary of Capital Investments

As the administrator of the BSA, FinCEN receives valuable information reported and collected 

under BSA requirements, which totaled approximately 19 million filings in FY 2014. To 

successfully fulfill its mission, FinCEN relies on secure, advanced Information Technology (IT) 

to manage the collection, processing, storage, and dissemination of BSA information that 

contributes to the soundness and confidence in America's financial system.

FinCEN's IT strategy takes into account the growing need for financial institutions to meet 

obligations as efficiently as possible, while ensuring that FinCEN and law enforcement agencies 

receive accurate, timely, and reliable BSA information to track money trails, identify money 

laundering, and unravel terrorist financing networks. FinCEN's IT strategy focuses on the 

critical need to improve the quality and accessibility of its data and increase responsiveness to 

stakeholders by maintaining and building upon flexible and innovative technical solutions. In 

FY 2014, FinCEN successfully completed all project milestones associated with the 4-year

development effort associated with its BSA IT Modernization Program. The BSA IT 

Modernization investment full life cycle cost (10 years) is $300.4 million (including FTE) and 

the FY 2016 costs are $27.6 million (including FTE).

A summary of capital investment resources, including major information technology and nontechnology investments, can be viewed and downloaded at 

http://www.treasury.gov/about/budget-performance/Pages/summary-of-capital-investments.aspx. 

This website also contains a digital copy of this document.