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### Viewing cable 05ANKARA7400, TURKEY 2005-2006 INTERNATIONAL NARCOTICS

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
05ANKARA7400 | 2005-12-16 15:50 | 2011-08-24 01:00 | UNCLASSIFIED | Embassy Ankara

`

    This record is a partial extract of the original cable. The full text of the original cable is not available.

    161550Z Dec 05

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    UNCLAS SECTION 01 OF 04 ANKARA 007400

    SIPDIS

    DEPARTMENT FOR INL, EUR/SE
    JUSTICE FOR OIA, AFMLS, AND NDDS
    TREASURY FOR FINCEN
    DEA FOR OILS AND OFFICE OF DIVERSION CONTROL

    E.O. 12958: N/A
    TAGS: SNAR TU
    SUBJECT: TURKEY 2005-2006 INTERNATIONAL NARCOTICS
    CONTROL STRATEGY REPORT, VOLUME II

    REF: STATE 210691

    ¶1. The following is Embassy Ankara's submission of Part
    II of the International Narcotics Control Strategy
    Report: Money Laundering and Financial crimes.
    ¶2.  BEGIN TEXT OF REPORT.
    TURKEY
    Turkey is an important regional financial center,
    particularly for Central Asia and the Caucasus, as well
    as for the Middle East and Eastern Europe. Turkey is
    not an offshore financial center. It continues to be a
    major transit route for Southwest Asian opiates moving
    to Europe. However, local narcotics-trafficking
    organizations are reportedly responsible for only a
    small portion of the total funds laundered in Turkey.
    A substantial percentage of money laundering that takes
    place in Turkey appears to involve tax evasion.  There
    is a large unregistered economy in Turkey.  Though by
    definition hard to estimate, as much as 50 percent of
    the economy may be unregistered. Since tax evasion is
    such a large problem, the Government of Turkey (GOT) in
    2005 passed a tax administration reform law with the
    goal of improving tax collection. There is no
    significant black market for smuggled goods in Turkey.
    There are 21 free trade zones operating in Turkey, but
    there is no evidence that they are being used in trade-
    based money laundering schemes or terrorist financing
    operations. The GOT closely controls access to the free
    trade zones.
    Money laundering takes place in both banks and non-bank
    financial institutions. Money laundering methods in
    Turkey include: the cross-border smuggling of currency;
    bank transfers into and out of the country; and the
    purchase of high value items such as real estate, gold,
    and luxury automobiles. It is believed that Turkish-
    based traffickers transfer money to pay narcotics
    suppliers in Pakistan and Afghanistan reportedly
    through alternative remittance systems. The funds are
    transferred to accounts in the United Arab Emirates,
    Pakistan, and other Middle Eastern countries. The money
    is then paid to the Pakistani and Afghan traffickers.
    Turkey criminalized money laundering in 1996 for a wide
    range of predicate offenses. Whoever commits a money
    laundering offense shall be sentenced to imprisonment
    from two to five years and is subject to asset
    forfeiture provisions and a fine of double the amount
    of the money laundered. Subsequent to passage of the
    1996 money laundering law, the Council of Ministers
    passed a set of regulations that require the filing of
    suspicious transaction reports (STRs), customer
    identification, and the maintenance of records for five
    years. These regulations apply to banks and a wide
    range of non-bank financial institutions, including
    insurance firms and jewelry dealers.
    In 2004, the GOT enacted additional anti-money
    laundering legislation. The GOT also enacted a new
    criminal law and a new criminal procedures law. The new
    Criminal Law, which took effect in June 2005, broadly
    defines money laundering to include as predicate
    offenses all crimes punishable by one year's
    imprisonment. Previously, Turkey's anti-money
    laundering law comprised a list of specific predicate
    offenses. A new Criminal Procedures Law, which also
    came into effect in June 2005, will facilitate asset
    forfeiture.
    In July 2001, the Ministry of Finance issued a banking
    regulation circular requiring all banks, including the
    Central Bank, securities companies, post office banks,
    and Islamic finance houses to record tax identity
    information for all customers opening new accounts,
    applying for checkbooks, or cashing checks. The
    circular also requires foreign exchange bureaus to sign
    contracts with their clients. The Ministry of Finance
    also issued a circular mandating that a tax identity
    number be used in all financial transactions as of
    September 1, 2001. The circular applies to all Turkish
    banks and to branches of foreign banks operating in
    Turkey, as well as to other financial entities and
    property registration offices. These requirements are
    intended to increase the Government's ability to track
    suspicious financial transactions. Turkey does not have
    secrecy laws that prevent disclosure of client and
    ownership information to bank supervisors and law
    enforcement officials. According to anti-money
    laundering law Article 5, public institutions,
    individuals, and corporate bodies must submit
    information and documents as well as adequate
    supporting information upon the request of Turkey's
    Financial Crimes Investigation Board (MASAK) or other
    authorities specified in Article 3 of the law.
    Corporate bodies and individuals may not claim
    protection provided by privacy provisions in order to
    avoid submitting the requested items.
    Generally speaking, Turkey does not have foreign
    exchange restrictions. However, Turkey does have cross-
    border currency reporting requirements. Except for
    payments for imports, invisible transactions and
    capital exports, banks and special finance institutions
    must inform authorities, within 30 days, about
    transfers abroad exceeding $50,000 or its equivalent in
    foreign currency notes (including transfers from
    foreign exchange deposits). Travelers may take up to
    $5,000 or its equivalent in foreign currency notes out
    of the country.
    The Banking Regulatory and Supervisory Agency (BRSA)
    conducts anti-money laundering compliance reviews at
    banks under authority delegated from MASAK. The Banking
    Law passed in 2005 was designed to strengthen bank
    supervision.
    The 1996 anti-money laundering law establishes MASAK,
    which falls under the umbrella of the Ministry of
    Finance. MASAK, which became operational in 1997,
    serves as Turkey's Financial Intelligence Unit (FIU),
    receiving, analyzing, and referring STRs for
    investigation. MASAK has a pivotal role between the
    financial community, on the one hand, and Turkish law
    enforcement, investigators, and judiciary, on the
    other. MASAK's training and equipment needs are being
    addressed by a European Union accession project, which
    is expected to end in June 2006.
    Under current law, MASAK has three functions:
    regulatory, financial intelligence, and investigative.
    In November, 2005, the Turkish Government submitted to
    Parliament a new law under which the agency would cede
    its investigative function to public prosecutors, while
    retaining its regulatory and financial intelligence
    roles.  The proposed law would reorganize MASAK along
    functional lines, explicitly criminalize the financing
    of terrorism, and provide "safe harbor" immunity to
    filers of suspicious transaction reports.  The law also
    expands the definition of parties subject to reporting
    requirements to art dealers, pension funds, exchange
    houses, jewelry stores, notaries, sports clubs, and
    real estate companies and defines sanctions for failure
    to comply with reporting requirements.  The law is
    currently under review in Parliament, and passage is
    expected in 2006.
    The number of STRs being filed is quite low, even
    taking into consideration the fact that many commercial
    transactions are paid in cash. In 2004, 289 STRs were
    filed.  From January to November 2005, 266 STRs were
    filed.  A possible reason for this is the lack of safe
    harbor protection for bankers and other filers of STRs.
    According to MASAK statistics, since its inception, the
    agency has pursued more than 2100 money laundering
    cases, but, as of July 2005 only eight had resulted in
    a conviction. Factors contributing to this low
    conviction rate include the fact that Turkey's police,
    prosecutors, judges, and investigators could still
    benefit from additional training in dealing with
    financial crimes, better coordination among law
    enforcement agencies and better coordination between
    the courts that prosecute the predicate offenses and
    the courts that prosecute money laundering cases. Most
    of the cases involve non-narcotics criminal actions or
    tax evasion; roughly 30 percent are narcotics related.
    Until the revised MASAK law is in place, terrorist
    financing is not explicitly defined as a criminal
    offense by Turkish law. Various laws with provisions
    that can currently be used to punish the financing of
    terrorism include Articles 220, 314, and 315 of the
    Turkish Penal Code, which prohibit assistance in any
    form to a criminal organization or to any organization
    which acts to influence public services; media;
    proceedings of bids, concessions, and licenses; or to
    gain votes, by using or threatening violence. General
    Communiqu No. 3 requires that a special type of STR be
    filed by financial institutions in cases of suspected
    terrorist financing. The GOT distributes the UNSCR 1267
    Sanctions Committee's consolidated list to interested
    GOT agencies and financial institutions.
    Another area of vulnerability in the area of terrorist
    financing is the GOT's loose supervision of non-profit
    organizations. The General Director of Foundations
    (GDF) issues licenses for charities and oversees them.
    The GDF requires charities to verify and prove their
    funding sources and to have bylaws. Charities are
    audited by the GDF and are subject to being shut down
    if they act outside the bylaws. The GDF keeps a central
    registry of charities.  However, the GOT does not have
    other oversight mechanisms, such as requiring the
    publication of annual reports or periodic reporting to
    competent authorities. Alternative remittance systems
    are illegal in Turkey-only banks and authorized money
    transfer companies are permitted to transfer funds.
    However, there is anecdotal evidence that alternative
    remittance systems exist.
    The Council of Ministers promulgated a decree
    (2001/2483) to freeze all the funds and financial
    assets of individuals and organizations included on the
    UNSCR 1267 Sanctions Committee's consolidated list.
    The tools currently available under Turkish law for
    locating, freezing, seizing, and confiscating terrorist
    assets are cumbersome, limited, and not particularly
    effective. For example, there is no legal mechanism to
    freeze the assets of terrorists not on the consolidated
    list. According to MASAK statistics, no assets
    connected to terrorist organizations or terrorist
    activities were frozen in 2005. Turkey also has in
    place a system for identifying, tracing, freezing, and
    seizing assets that are not related to terrorism,
    although Turkish law allows for only criminal
    forfeiture not for the administrative freezing of
    assets. The anti-money laundering law, Article 7,
    provides for the confiscation of all property and
    assets (including derived income or returns) that are
    the proceeds of a money laundering predicate offense
    (soon to be expanded to crimes punishable by one year
    imprisonment), once the defendant is convicted. The law
    allows for the confiscation of the equivalent value of
    direct proceeds that could not be seized.
    Instrumentalities of money laundering can be
    confiscated under the law. In addition to the anti-
    money laundering law, Article 54 and 55 of the Criminal
    Code provides for post-conviction seizure and
    confiscation of the proceeds of crimes. The defendant,
    however, must own the property subject to forfeiture.
    Legitimate businesses can be seized if used to launder
    drug money, support terrorist activity, or are
    otherwise related to other criminal proceeds. Property
    or its value that is confiscated is transferred to the
    Treasury.
    The government enforces existing drug-related asset
    seizure and forfeiture laws. MASAK, the Turkish
    National Police, and the Courts are the government
    entities responsible for tracing, seizing and freezing
    assets. According to Article 9 of the anti-money
    laundering law, the Court of Peace-a minor arbitration
    court for petty offenses-has the authority to issue an
    order to freeze funds held in banks and non-bank
    financial institutions as well as other assets, and to
    hold the assets in custody during the preliminary
    investigation. During the trial phase, the presiding
    court has freezing authority. Public Prosecutors may
    freeze assets in cases where it is necessary to avoid
    delay. The Public Prosecutors' Office notifies the
    Court of Peace about the decision within 24 hours. The
    Court of Peace has 24 hours to decide whether to
    approve the action. There is no time limit on freezes.
    There is no provision in Turkish law for the sharing of
    seized assets with other countries.
    The GOT cooperates closely with the United States and
    with its neighbors in the Southeast Europe Cooperation
    Initiative (SECI). Turkey and the United States have a
    Mutual Legal Assistance Treaty (MLAT) and cooperate
    closely on narcotics and money laundering
    investigations.
    Turkey is a member of the Financial Action Task Force
    (FATF) and the Egmont Group. Turkey is a party to the
    1988 UN Drug Convention, the UN International
    Convention for Suppression of the Financing of
    Terrorism and the UN Convention against Transnational
    Organized Crime. Turkey has signed and ratified the COE
    Convention on Laundering, Search, Seizure, and
    Confiscation of the Proceeds of Crime, and it will come
    into force on February 1, 2005. Turkey has signed, but
    not yet ratified, the UN Convention against Corruption.
    In December 2005, the General Assembly's Foreign
    Affairs Committee adopted a draft law ratifying this
    convention. Implementation efforts on UN anti-financial
    crime conventions are weak, and Turkey is not believed
    to be in full conformity with the FATF's Special
    Recommendations on Terrorist Financing. The MASAK law
    will partially, but not completely, bring Turkey into
    compliance with these Special Recommendations.

    WILSON

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