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Multi-Layered Approaches to Counter Terrorist Financing: Norm Development and Compliance

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Multi-Layered Approaches to Counter Terrorist Financing: Norm Development and Compliance MULTI-LAYERED APPROACHES TO COUNTER TERRORIST FINANCING: NORM DEVELOPMENT AND COMPLIANCE Doron Goldbarsht A thesis submitted in fulfilment of the requirements for the degree of Doctor of Philosophy University of New South Wales Law Faculty Sydney, Australia 27 March 2018 ii iii ACKNOWLEDGEMENTS Thesis supervised by Professor Andrew Byrnes, Professor Rosalind Dixon and Associate Professor Christopher Michaelsen. I would like to express my gratitude to Professor Andrew Byrnes, Professor Rosalind Dixon and Associate Professor Christopher Michaelsen. I gratefully acknowledge the support of the Sir Anthony Mason PhD Award in Public Law for partly funding this research. iv v TABLE OF CONTENTS LIST OF PRIMARY ACRONYMS USED .......................................................................................... XI INTRODUCTION .................................................................................................................................... 1 CHAPTER 1: THE IMPORTANCE OF COUNTERING TERRORIST FINANCING ............... 17 CHAPTER 2: BINDING AND NON-BINDING NORMS IN COUNTERING TERRORIST FINANCING ........................................................................................................................................... 47 CHAPTER 3: EXAMINING THE LEVEL OF IMPLEMENTATION ............................................ 82 CHAPTER 4: EXAMINING THE LEVEL OF COMPLIANCE ..................................................... 101 CHAPTER 5: FEATURES OF THE REGIME THAT HAVE LED TO ITS HIGH LEVELS OF COMPLIANCE ..................................................................................................................................... 212 CONCLUSION ..................................................................................................................................... 227 BIBLIOGRAPHY .................................................................................................................................. 239 APPENDIX A: MATRIX OF COMPARISON INCLUDING IMPOSSIBLE COMBINATIONS .................................................................................................................................................................. 277 APPENDIX B: RATING COMPLIANCE WITH FATF RECOMMENDATIONS ................... 278 vi Contents DETAILED TABLE OF CONTENTS LIST OF PRIMARY ACRONYMS USED .......................................................................................... XI INTRODUCTION .................................................................................................................................... 1 TRADITIONAL FORMAL SOURCES OF LAW .................................................................................................. 5 SOFT AND HARD LAW ................................................................................................................................. 7 TRADITIONAL THEORIES OF COMPLIANCE ................................................................................................. 9 The Managerial Model .................................................................................................................... 10 Consent ........................................................................................................................................... 11 Legitimacy ....................................................................................................................................... 11 Transnational Legal Process ........................................................................................................... 12 MULTI-LAYERED NORMS IN THE CTF REGIME ........................................................................................ 12 CHAPTER 1: THE IMPORTANCE OF COUNTERING TERRORIST FINANCING ............... 17 FINANCIAL MANAGEMENT OF TERRORIST ORGANISATIONS .................................................................. 17 The Ambiguity of ‘Terrorism’ ......................................................................................................... 19 The Importance of Finance for Terrorism ....................................................................................... 24 Financing the Military Wing ......................................................................................................... 26 Financing the Civil Wing ............................................................................................................... 29 TERRORIST FINANCING METHODS AND TECHNIQUES ............................................................................. 33 Proceeds of Criminal Activity ......................................................................................................... 34 State Sponsorship of Terrorist Organisations ................................................................................ 36 Proceeds of Legitimate Activity ...................................................................................................... 36 Donations, Abuse and Misuse of Non-Profit Organisations ......................................................... 37 THE DISTRIBUTION OF FUNDS ................................................................................................................... 40 Money Laundering ......................................................................................................................... 40 What Is Money Laundering? ........................................................................................... 40 The Link between Money Laundering and Terrorist Financing ................................ 41 Informal Funds Transfer ................................................................................................................. 43 Conclusions: A Considerable Price Tag Accompanies Terrorist Activity ...................................... 45 CHAPTER 2: BINDING AND NON-BINDING NORMS IN COUNTERING TERRORIST FINANCING ........................................................................................................................................... 47 SETTING THE SCENE: THE INTERNATIONAL REGIME ............................................................................... 47 TERRORIST FINANCING CONVENTION ...................................................................................................... 49 UNITED NATIONS SECURITY COUNCIL ..................................................................................................... 52 Mandate .......................................................................................................................................... 52 Structure and Organisation ........................................................................................................... 53 UNSC Counter-Terrorist Financing Efforts .................................................................................. 53 Security Council Resolution 1267 (1999) ........................................................................ 53 Security Council Resolution 1373 (2001) ........................................................................ 55 Counter-Terrorism Committee ....................................................................................................... 56 FINANCIAL ACTION TASK FORCE ............................................................................................................. 58 Mandate .......................................................................................................................................... 58 Structure and Organisation ........................................................................................................... 59 FATF President and Vice-President ............................................................................... 59 FATF Secretariat ................................................................................................................ 60 Plenary Group ................................................................................................................... 60 Members and Observers .................................................................................................. 61 FATF Counter-Terrorist Financing Efforts.................................................................................... 64 The Forty Recommendations .......................................................................................... 64 Mutual Evaluation Report ............................................................................................... 67 Sanctions ............................................................................................................................ 71 FATF Dealing with High-Risk and Non-Cooperative Jurisdictions .......................... 71 vii Contents Counter-Measures ............................................................................................................ 74 The International Co-Operation Review Group ........................................................... 79 CHAPTER 3: EXAMINING THE LEVEL OF IMPLEMENTATION ............................................ 82 INTRODUCTION: CRITERIA OF EFFECTIVE IMPLEMENTATION .................................................................. 82 IMPLEMENTATION: SHAPING THE REGULATORY FRAMEWORK ............................................................... 86 1. Implementation of UN Instruments .................................................................................... 88 2. Criminalisation of Terrorist Financing ..............................................................................
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