Financial Crimes Enforcement 

Network

FY 2015

President’s Budget
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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...................................................................................................... 8

2B – Appropriations Language and Explanation of Changes..................................................... 9

2C – Legislative Proposals.......................................................................................................... 9

Section 3 – Budget and Performance Plan ............................................................................... 10

3A – BSA Administration and Analysis................................................................................... 10

3.1.1 – BSA Administration and Analysis Budget Activity Budget and Performance Plan .... 12

Section 4 – Supplemental Information...................................................................................... 13

4A – Summary of Capital Investments..................................................................................... 14
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Section 1 – Purpose

1A – Mission Statement

The mission of 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 2013 FY 2014 FY 2015 FY 2014 to FY 2015

Appropriated Resources Operating Level Enacted Request $ Change % Change

 FTE AMOUNT FTE AMOUNT FTE AMOUNT FTE AMOUNT FTE AMOUNT

New Appropriated Resources:

BSA Administration and Analysis 300 104,993 345 112,000 345 108,661 0 (3,339) 0.00% -2.98%

Subtotal New Appropriated Resources 300 $104,993 345 $112,000 345 $108,661 0 ($3,339) 0.00% -2.98%

Other Resources:

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

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

Unobligated Balances from Prior Years 0 31,000 0 40,000 0 40,000 0 0 NA 0.00%

Subtotal Other Resources 2 $34,500 1 $43,500 1 $43,500 0 $0 0.00% 0.00%

Total Budgetary Resources 302 $139,493 346 $155,500 346 $152,161 0 ($3,339) 0.00% -2.15%

1B – Vision, Priorities and Context

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’s activities and efforts are linked to 

Treasury’s strategic goal 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 by and between FinCEN, and its domestic and 

foreign partners in government and private industry.

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 regulatory partners; serving as the U.S. Financial Intelligence Unit (FIU) 

along with a network of FIUs in more than 130 partner countries; receiving millions of new BSA 

reports each year and maintaining a database of over 170 million reports; analyzing and 

disseminating financial intelligence to law enforcement, regulators, and other foreign FIUs; and 

bringing together the disparate interests of law enforcement, FIU, regulatory partners, and 

industry.
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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. 

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 2013 include:

• Completed an in-depth assessment and began implementation of a FinCEN reorganization 

that ensures the bureau is aligned to meet Treasury and TFI priorities and takes advantage of 

the synergies from the modernized BSA system; 

• Joined other Federal and state agencies in imposing a $1.9 billion enforcement action against 

HSBC, the largest combined BSA and anti-money laundering (AML) penalty ever imposed 

against any financial institution; 

• Imposed a $15 million civil monetary penalty against First Bank of Delaware for failing to 

mitigate risk related to third-party payment processors engaged in defrauding vulnerable 

populations.

• Issued interpretive guidance to clarify applicability of BSA to administrators and exchangers 

of convertible currency and provided reference information to partners on emerging payment 

systems;

• Implemented new processes to identify and deter money laundering through targeted 

enforcement actions; 

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

identification of key links to third-party money launderers; 

• Tripled the use of Section 311 actions against financial institutions of primary money 

laundering concern;

• Provided immediate support to the FBI for an ongoing terrorism investigation to identify 

links and associations in the BSA filings, expedite Egmont requests, and facilitate 314a 

outreach; and

• Completed the BSA IT Modernization Program, including user access to FinCEN Query, 

mandatory electronic filing, advanced analytical tools, and alerts capability (automatic 

matching) between BSA data and incoming requests. 
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To meet its priorities in FY 2014 and FY 2015, FinCEN will:

• Enhance enforcement of BSA violations across all classes and sizes of financial institutions 

subject to FinCEN oversight, through improved identification of targets and illicit finance 

risks and use of injunction actions against individuals as appropriate;

• Target examination efforts in high priority areas based on an intelligence-driven approach;

• Support criminal investigations and prosecutions through financial expertise and advanced 

analytical tools across large data sets;

• Develop analytic products on emerging payment mechanisms serving as avenues for the 

movement of illicit funds; 

• Engage with priority countries and international bodies to support financial crime 

investigations through global exchange of financial intelligence; 

• Enhance law enforcement and private sector collaboration to mitigate money laundering and 

financial crime threats employed by transnational criminal organizations; and

• Use predictive analysis to identify and target illicit networks, institutions, jurisdictions, and 

schemes.
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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 2014 Enacted 345 $112,000

Changes to Base:

Maintaining Current Levels (MCLs): - $1,987

Pay-Raise - $588

FERS Contribution Increase - $488

Non-Pay - $911

Non-Recurring Costs: - ($4,146)

One-Time Information Technology Investment - ($2,146)

Enhanced Advanced Analytics SAS Support - ($2,000)

Subtotal Changes to Base - ($2,159)

Total FY 2015 Base 345 $109,841

Program Changes:

Program Decreases: - ($1,180)

Contract Efficiencies - ($1,180)

Total FY 2015 Request 345 $108,661

2A – Budget Increases and Decreases Description

Maintaining Current Levels (MCLs) ......................................................+$1,987,000 / +0 FTE

Pay-Raise +$588,000 / +0 FTE 

Funds are requested for the January 2015 pay-raise and the annualization of the 2014 pay-raise. 

FERS Contribution Increase +$488,000 / +0 FTE 

Funds are requested for increases in agency contributions to the Federal Employee Retirement 

System based on updated actuarial estimates.

Non-Pay +$911,000 / +0 FTE 

Funds are requested for non-labor costs such as travel, contracts, rent, supplies, and equipment.

Non-Recurring Costs .................................................................................-$4,146,000 / +0 FTE

One-Time Information Technology Investment -$2,146,000 / +0 FTE 

Funding that was used in FY 2014 to upgrade information technology and evaluate new 

technology innovations is non-recurred. For example, FinCEN invested in new technology 

during FY 2014 to evaluate a proof of concept for a new storage technology to meet increasing 

storage demands. 

Enhanced Advanced Analytics SAS Support -$2,000,000 / +0 FTE 

Funding that was used to expand SAS advanced analytical contractor support is non-recurred. 

This one-time investment allowed FinCEN to strengthen the organization’s use of new BSA IT 

Modernization analytical capabilities. This support allowed FinCEN to exploit financial 
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intelligence data and proactively identify targets through the development and refinement of text 

mining or data extracts. 

Program Decreases ....................................................................................-$1,180,000 / +0 FTE

Contract Efficiencies -$1,180,000 / +0 FTE 

Savings are expected to result from continued evaluation of contracts for strategic sourcing and 

negotiation of more advantageous contract terms. FinCEN will also reduce commercial database 

contracts and contract case support. The commercial databases are used as one of the 

components in the intelligence analysis reports and include sources such as Lexis/Nexis, Clear, 

and Dun/Bradstreet. The contract case support provides research of persons/businesses and other 

related information using BSA data for FIU partners who are not permitted direct access to the 

BSA data. To achieve these efficiency savings, FinCEN will examine all contracts and ensure 

reductions minimize impact to its mission.
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2.2 – Operating Levels Table

Dollars in Thousands

Financial Crimes Enforcement Network FY 2013 FY 2014 FY 2015

Object Classification Actual Enacted Request

11.1 - Full-time permanent 33,671 40,141 40,597

11.3 - Other than full-time permanent 349 408 408

11.5 - Other personnel compensation 472 205 205

11.9 - Personnel Compensation (Total) 34,492 40,754 41,210

12.0 - Personnel benefits 9,825 11,503 12,123

Total Personnel and Compensation Benefits $44,317 $52,257 $53,333

21.0 - Travel and transportation of persons 498 770 777

23.1 - Rental payments to GSA 4,866 5,085 5,151

23.2 - Rental payments to others 24 901 902

23.3 - Communication, utilities, and misc charges 1,302 1,612 1,629

24.0 - Printing and reproduction 84 258 263

25.1 - Advisory and assistance services 3,798 1,097 1,097

25.2 - Other services 8,596 15,090 12,612

25.3 - Other purchases of goods & serv frm Govt accounts 9,593 7,623 7,919

25.4 - Operation and maintenance of facilities 114 740 740

25.6 - Medical care 168 166 168

25.7 - Operation and maintenance of equip 18,182 18,453 17,945

26.0 - Supplies and materials 298 310 315

31.0 – Equipment 5,502 7,638 5,810

Total Non-Personnel 53,025 59,743 55,328

Subtotal New Appropriated Resources $97,342 $112,000 $108,661

Budget Activities:

BSA Administration and Analysis 139,493 155,500 152,161

Total Budgetary Resources $139,493 $155,500 $152,161

FTE 302 346 346
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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 $14,000 for official reception 

and representation expenses; and for assistance to Federal law 

enforcement agencies, with or without reimbursement, 

[$112,000,000,] $108,661,000, of which not to exceed 

$34,335,000 shall remain available until September 30, [2016] 

2017. (Department of the Treasury Appropriations Act, 2014.)

2C – Legislative Proposals

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

3A – BSA Administration and Analysis

($108,661,000 from direct appropriations, and $3,000,000 from reimbursable resources): 

The programs funded by this budget activity support the Treasury strategic goal to 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 financial intelligence units, and industry; and serve as the United States FIU 

and maintaining network of information sharing with FIUs in partner countries.

FinCEN supports the following Treasury strategic objectives:

• Identify priority threats to the financial system using intelligence analysis and outreach to the 

financial sector;

• Develop, implement, and enforce sanctions and other targeted financial measures; and

• Protect the integrity of the financial system by implementing, promoting, and enforcing antimoney laundering and counterterrorism financing standards.

The goal owner for this budget activity is the Director of FinCEN. 

To support the FinCEN objective to adopt strong anti-money laundering and counterterrorism 

financing regulatory authorities, FinCEN tracks the percentage of users finding that financial 

intelligence collected by FinCEN pursuant 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, and provided information for an investigative or examination report. In FY 2013, 

80 percent of customers found the FinCEN data provides valuable information. FinCEN did not 

to meet its target of 90 percent. We believe that the decrease in percentage of customers finding 

FinCEN’s BSA data provides valuable information was impacted by the limited experience that 

users had with FinCEN’s new BSA query tool. Most users had access to the new FinCEN Query 

tool for only a few months prior to completion of this survey. It is understandable that our users 

would need more time to transition adjust to our new system and, unfortunately, that the 

transition period coincided with our performance survey schedule. Our plan going forward is to 

place greater emphasis on both in-person and on-line training that will better assist our users in 

understanding and utilizing the new FinCEN Query tool for their unique cases and 

situations. Additionally, we will try to identify and address any agency specific issues that might 

have contributed to lower scores. This should result in at least 85 percent of the respondents 

finding value in BSA data in FY 2014, with a FY 2015 target of 90 percent.

To support the FinCEN objective to implement and enforce AML/CFT regulatory authorities and 

employ targeted financial measures against priority threats, FinCEN will track the percentage of 

AML/CFT supervisors who indicate that FinCEN’s enforcement actions have resulted in 
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increased compliance by covered financial institutions. This measure examines the survey 

responses of state and Federal financial regulatory agencies with information sharing 

agreements. The MOUs 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 will baseline the results in FY 2014 and set appropriate future 

targets. 

To support the FinCEN objective to use research, analysis, and advanced analytics to identify 

and explain priority threats to the financial system, FinCEN tracks the percentage of customers 

finding that FinCEN’s research, analysis, and advanced analytics contribute to the safeguarding 

of the financial system, combating money laundering, and counter terrorist financing. 

In FY 2013, FinCEN scored 81 percent, narrowly missing its target of 83 percent finding the 

domestic analytic reports valuable. FinCEN attributes this lower score to declines in satisfaction 

with proactive products resulting from its focus on other mission related priorities and types of 

products. FinCEN created an analyst working group to review its customers/product types and 

make recommendations for enhancements and broader dissemination for greater impact. 

FinCEN has also increased its emphasis on production of proactive products and believes it will 

be able to achieve a higher percentage of customers who find its analytical products valuable 

with more focused products and targeted dissemination in the future. 

The FY 2015 target is 84 percent. FinCEN expects to achieve this target by focusing on 

proactive products.

To support the FinCEN objective 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 will measure the percentage of 

stakeholders finding FinCEN’s information sharing has contributed to their organization’s 

responsibilities. This measure examines the survey responses of the FinCEN customers who 

have who have had contact with the FinCEN’s liaison division to exchange information. This 

includes industry, regulators, and law enforcement, both domestic and foreign partners 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 will baseline the results in FY 2014 and set appropriate future 

targets. 

To support the FinCEN objective to 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 will track the percentage of users satisfied with FinCEN 

information sharing systems. This measure is a composite survey measure and represents the 

users’ satisfaction with the technology systems. This measure tracks satisfaction with BSA E-
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Filing, FinCEN Query, and the Egmont Secure Web questions. Starting with industry, FinCEN 

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

FinCEN provides internal users (including Treasury and TFI), and external law enforcement and 

regulatory users access to a query system containing 11 years of BSA data; provides internal 

users with a tool to conduct advanced analysis; 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. FinCEN will baseline this information in FY 2014 and set 

appropriate future targets.
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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 2008 FY 2009 FY 2010 FY 2011 FY 2012 FY 2013 FY 2014 FY 2015

Enacted Enacted Enacted Enacted Enacted Operating 

Level

Enacted Request

 Appropriated Resources $85,844 $91,465 $111,010 $110,788 $110,788 $104,993 $112,000 $108,661

 Reimbursable Resources $1,541 $8,000 $20,000 $20,000 $20,000 $3,000 $3,000 $3,000

Budget Activity Total $70,147 $89,353 $99,494 $108,976 $130,788 $107,993 $115,000 $111,661

Measure FY 2008 FY 2009 FY 2010 FY 2011 FY 2012 FY 2013 FY 2014 FY 2015

Actual Actual Actual Actual Actual Actual Target Target

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 N/A 87.0 89.0 90.0 80.0 84.0 85.0

Percentage of Customers Finding 

FinCEN’s Research, Analysis, and 

Advanced Analytics Contribute to 

the Safeguarding of the Financial 

System, Combating Money 

Laundering, and Counter Terrorist 

Financing 

N/A N/A 80.0 86.0 83.0 81.0 82.0 84.0

Percentage of AML/CFT 

Supervisors Who Indicate that 

FinCEN’s Enforcement actions 

Have Resulted in Increased 

Compliance by Covered Financial 

Institutions 

New New New New New New Baseline TBD

Percentage of Stakeholders Finding 

FinCEN’s Information Sharing Has 

Contributed to Their Organization’s 

Responsibilities

New New New New New New Baseline TBD

Percentage of Users Satisfied with 

FinCEN Information Sharing 

Systems

New New New New New New Baseline TBD

Percentage of Financial Regulators 

Finding Information Exchanged with 

FinCEN Under MOUs Valuable to 

Improve BSA Consistency and 

Compliance*

64.0 82.0 86.0 92.0 93.0 88.0 DISC DISC

Percentage of Foreign FIUs Finding 

FinCEN's Analytic Reports Provide 

Valuable Information Towards the 

Detection and Deterrence of 

Financial Crime*

N/A N/A 90.0 92.0 82.0 92.0 DISC DISC

Percentage of Regulatory Helpline 

Customers Understanding BSA 

Guidance*

94.0 94.0 92.0 92.0 89.0 92.0 DISC DISC 

Key: DISC – Discontinued and B-Baseline

*FinCEN has changed its measures to align to the new strategic plan.
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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 18.5 million filings in FY 2013. The 

bureau's mission 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. FinCEN's mission supports 

Treasury's strategic goal to protect our national security through targeted financial actions. 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 introducing and maintaining flexible and innovative technical solutions. FinCEN 

has successfully completed all FY2010-FY2013 project milestones associated with its BSA IT 

Modernization Program and will complete the remaining development effort in 2014. The BSA 

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

the FY 2015 costs are $27.6 million (including FTE).l Investments

A summary of capital investment resources, including major information technology and nontechnology investments, can be viewed/downloaded at: http://www.treasury.gov/about/budgetperformance/Pages/summary-of-capital-investments.aspx