Cahier 2020-12a Dutch National Risk Assessment on Terrorist Financing 2019 H.C.J. van der Veen L.F. Heuts With the cooperation of E.C. Leertouwer Cahier The ‘Cahier’ series comprises concise reports of research conducted by and/or on behalf of the WODC. Inclusion in the series does not mean that the contents reflect the point of view of the Dutch Minister of Justice and Security. All WODC reports can be downloaded free of charge at www.wodc.nl. Contents Abbreviations — 5 Summary — 8 1 Introduction — 16 1.1 Reason for the study — 16 1.2 What is terrorist financing? — 17 1.3 Research objective and questions — 17 1.4 Lessons from the first Terrorist Financing NRA — 18 1.5 Reading guide — 19 2 Research methodology — 21 2.1 Key concepts of the NRA — 21 2.2 Performing the NRA in accordance with the ISO 31000 framework — 22 2.3 Methods used — 22 3 Background to terrorist financing — 34 3.1 Extremism and terrorism — 34 3.2 Terrorist activities in the Netherlands — 35 3.3 Current terrorist threat in the Netherlands — 37 3.4 Terrorist financing — 39 4 What makes the Netherlands vulnerable to terrorist financing? — 41 4.1 Geographic characteristics — 41 4.2 Demographic characteristics — 42 4.3 Religious characteristics — 43 4.4 Sociocultural characteristics — 44 4.5 Political characteristics — 45 4.6 Economic characteristics — 46 4.7 Criminological characteristics — 48 4.8 Conclusion — 49 5 Insight into the greatest threats in the field of terrorist financing — 51 5.1 Identification of the greatest TF threats — 51 5.2 Methods of financing jihadist terrorism — 54 6 Resilience of the policy instruments — 64 6.1 Organisation of the combat of terrorist financing — 64 6.2 Available policy instruments — 65 6.3 International laws and regulations — 67 6.4 National laws and regulations — 68 6.5 Other policy instruments — 72 6.6 Possibilities for improving resilience — 75 Research and Documentation Centre Cahier 2020-12a | 3 7 Greatest risks in the field of terrorist financing — 79 7.1 Assessment of the potential impact of the greatest TF threats — 79 7.2 Assessment of the resilience of the available policy instruments — 80 7.3 Greatest TF risks in the Netherlands — 82 8 Conclusions — 86 8.1 Answers to the research questions — 86 8.2 Evaluation of the second NRA — 93 8.3 Lessons for the next NRA — 97 References — 99 Appendices 1 Composition of the Scientific Advisory Committee — 105 2 List of interviewed experts — 106 3 List of participants at the expert meetings — 107 4 Terrorist financing threats in the FLUU Survey — 108 5 Email survey on policy instruments — 110 6 Results of the expert meetings — 112 7 Quantitative data analysis — 118 Research and Documentation Centre Cahier 2020-12a | 4 Abbreviations ABN-AMRO Algemene Bank Nederland, Amsterdam-Rotterdam Bank AFM Dutch Authority for the Financial Markets (Autoriteit Financiële Markten) AIU Anonymous, International, Unregulated (AIO, Anoniem, Internationaal en Ongereguleerd) AIVD General Intelligence and Security Service (Algemene Inlichtingen- en Veiligheidsdienst) ANBI Public Benefit Organisation (ANBI, Algemeen Nut Beogende Instelling) BES Bonaire, Sint Eustatius and Saba BFI Special Financial Institutions (Bijzondere Financiële Instellingen) BFT Financial Supervision Office (Bureau Financieel Toezicht) GDP Gross Domestic Product BTWwft Wwft Monitoring Office (Bureau Toezicht Wwft) BV Private limited company (Besloten vennootschap) CARIN Camden Asset Recovery Inter-agency Network CBF Central Fundraising Bureau (Centraal Bureau Fondsenwerving) CBS Statistics Netherlands (Centraal Bureau voor de Statistiek) CIA Central Intelligence Agency CJIB Central Fine Collection Agency (Centraal Justitieel Incassobureau) CPI Corruption Perceptions Index CT Counterterrorism (Contraterrorisme) CV Limited partnership (Commanditaire vennootschap) DJI Custodial Institutions Agency (Dienst Justitiële Inrichtingen) DNB De Nederlandsche Bank, the Dutch central bank DTN Terrorist Threat Assessment Netherlands (Dreigingsbeeld Terrorisme Nederland) DUO Education Executive Agency (Dienst Uitvoering Onderwijs) EBA European Banking Authority ECB European Central Bank EEA European Economic Area EFECC European Financial and Economic Crime Centre EMCDDA European Monitoring Centre for Drugs and Drug Addiction EMPACT European Multidisciplinary Platform Against Criminal Threats ETA Euskadi Ta Askatasuna EU European Union EFTA European Free Trade Association EVA External Referral Application (Externe Verwijzingsapplicatie) FATF Financial Action Task Force FCInet Financial Criminal Investigation network FEC Financial Expertise Centre (Financieel Expertise Centrum) FIU-NL Financial Intelligence Unit – the Netherlands FIOD Fiscal Information and Investigation Service (Fiscale Inlichtingen- en Opsporingsdienst) FLUU Facts/Cases, Likely, Unlikely and Unknown (Feiten/casus, Aannemelijk, Niet aannemelijk en Onbekend) G7 Group of Seven GDR Group Decision Room ICO Initial Coin Offering Research and Documentation Centre Cahier 2020-12a | 5 iCOV Information Exchange on Criminal and Unexplained Wealth (infobox Crimineel en Onverklaarbaar Vermogen) IKZ Healthcare Fraud Information Hub (Informatie Knooppunt Zorgfraude) IND Immigration and Naturalisation Service (Immigratie- en Naturalisatiedienst) ING Internationale Nederlanden Groep IOCTA Internet Organised Crime Threat Assessment IRA Irish Republican Army ISIS Islamic State of Iraq and Syria ISO 31000 Risk Management based on the standards of the International organisation for Standardization IT Information Technology J5 Joint Chiefs of Global Tax Enforcement KMar Royal Netherlands Military and Border Police (Koninklijke Marechaussee) KNB Royal Dutch Association of Civil-Law Notaries (Koninklijke Notariële Beroepsorganisatie) Ksa Netherlands Gambling Authority (Kansspelautoriteit) LGBTQI Lesbian, Gay, Bisexual, Transgender, Queer and Intersex LIEC National Information and Expertise Centre (Landelijk Informatie en Expertise Centrum) MCA Multi-criteria Analysis (Multi Criteria Analyse) MDMA 3,4-Methylenedioxymethamphetamine MIVD Military Intelligence and Security Service (Militaire Inlichtingen- en Veiligheidsdienst) NBA Netherlands Institute of Chartered Accountants (Nederlandse Beroepsorganisatie van Accountants) NOvA Netherlands Bar Association (Nederlandse Orde van Advocaten) NRA National Risk Assessment NV Public limited company (Naamloze Vennootschap) NVB Dutch Banking Association (Nederlandse Vereniging van Banken) NVGTK Dutch Money Transfer Association (Nederlandse Vereniging van Geldtransactiekantoren) NVM Dutch Association of Real Estate Brokers and Valuers (Nederlandse Vereniging van Makelaars en Taxateurs) OECD Organisation for Economic Co-operation and Development OM Public Prosecution Service (Openbaar Ministerie) PGB Personal Budget (Persoonsgebonden Budget) PKK Kurdistan Workers’ Party (Partiya Karkerên Kurdistanê) PSP Payment Service Provider RABO Raifeissen Bank, Boerenleenbank RAF Red Army Faction (Rote Armee Fraktion) R&D Research and Development RIEC Regional Information and Expertise Centre (Regionaal Informatie en Expertise Centrum) ROR Dutch Training Institute for the Prevention of Radicalisation (Rijksopleidingsinstituut tegengaan Radicalisering) RPI Residual Potential Impact (Resterende Potentiële Impact) SNRA Supranational Risk Assessment SZW Ministry of Social Affairs and Employment (Sociale Zaken en Werkgelegenheid) TF Terrorist financing (Terrorismefinanciering) Research and Documentation Centre Cahier 2020-12a | 6 UBO Ultimate Beneficial Owner VFN Dutch Finance Houses’ Association (Vereniging van financieringsondernemingen in Nederland) UN United Nations UNSC United Nations Security Council VOF Commercial partnership (Vennootschap onder firma) WED Economic Offences Act (Wet op de economische delicten) Wet Bibob Public Administration Probity Screening Act (Wet bevordering integriteitsbeoordelingen door het openbaar bestuur) WODC Research and Documentation Centre (Wetenschappelijk Onderzoek- en Documentatiecentrum) Wft Financial Supervision Act (Wet op het financieel toezicht) Wiv Intelligence and Security Services Act (Wet op de inlichtingen- en veiligheidsdiensten) WTR Wire Transfer Regulation WvSr Penal Code (Wetboek van Strafrecht) WvSv Code of Criminal Procedure (Wetboek van Strafvordering) Wwft Money Laundering and Terrorist Financing Prevention Act (Wet ter voorkoming van witwassen en financieren van terrorisme) Research and Documentation Centre Cahier 2020-12a | 7 Summary Background Dutch policy to prevent and combat terrorist financing is based on the recommen- dations of the Financial Action Task Force (FATF) and European Union (EU) direc- tives and regulations. The FATF, an intergovernmental body set up by the G7 in 1989, focuses on preventing and combating money laundering, terrorist financing and other related threats to the integrity of the international financial system on a global scale. Members of the FATF, including the Netherlands, are committed to implementing the FATF recommendations aimed at taking preventive and repres- sive measures by ‘reporting institutions’1 and to implement measures to improve national legal and regulatory systems and international cooperation in this field. In addition, the FATF monitors the correct functioning and effectiveness of those (legal) rules. The majority of the FATF’s recommendations has been adopted in- to the fourth EU Anti-Money Laundering Directive and the amendments thereof, applicable to all EU Member States. Article 7 of this directive obliges EU Member States to implement a risk-based policy