{{Short description|Redesigning of a large transaction as multiple small transactions to avoid scrutiny}} {{Distinguish|Structured finance}} {{Globalize|article|USA|2name=the United States|date=October 2014}} {{Use dmy dates|date=January 2020}}
'''Structuring''', also known as '''smurfing''' in banking jargon, is the practice of executing financial transactions such as making bank deposits in a specific pattern, calculated to avoid triggering financial institutions to file reports required by law, such as the United States' Bank Secrecy Act (BSA) and Internal Revenue Code section 6050I (relating to the requirement to file Form 8300). Structuring may be done in the context of money laundering, fraud, and other financial crimes. Legal restrictions on structuring are concerned with limiting the size of domestic transactions for individuals.
==Overview== Structuring is the act of parceling what would otherwise be a large financial transaction into a series of smaller transactions to avoid scrutiny by regulators and law enforcement.<ref name="linn">{{cite journal|last1=Linn|first1=Courtney J.|title=Redefining the Bank Secrecy Act: Currency Reporting and the Crime of Structuring|journal=Santa Clara Law Review|date=2010|volume=50|issue=2|pages=407–513|url=http://digitalcommons.law.scu.edu/cgi/viewcontent.cgi?article=1058&context=lawreview}}</ref> Typically each of the smaller transactions is executed in an amount below some statutory limit that normally does not require a financial institution to file a report with a government agency. Criminal enterprises may employ several agents ("smurfs") to make the transaction. Structuring appears in federal indictments related to money laundering, fraud, and other financial crimes.
The term "smurfing" is derived from the image of the comic book characters the Smurfs having a large group of many small entities.<ref>{{cite web |url=https://www.scotiabank.com/ca/en/personal/advice-plus/features/posts.what-is-cuckoo-smurfing.html |title=What is cuckoo smurfing and how can you protect yourself against it? |website=Scotiabank |date=September 15, 2022 |access-date=May 2, 2025 |archive-url=https://web.archive.org/web/20220929042324/https://www.scotiabank.com/ca/en/personal/advice-plus/features/posts.what-is-cuckoo-smurfing.html |archive-date=September 29, 2022 |url-status=live}}</ref> Miami-based lawyer Gregory Baldwin is said to have coined the term in the 1980s.<ref>{{cite news | author1=Gross, Samantha | author2=Barrett, Devlin | title=Spitzer Tripped Up on Laws He Enforced | url=http://www.foxnews.com/wires/2008Mar11/0,4670,SpitzerTheMoneyTrail,00.html | work=Fox News | date=11 March 2008 | access-date=2008-03-14 | url-status=dead | archive-url=https://web.archive.org/web/20080322064115/http://www.foxnews.com/wires/2008Mar11/0,4670,SpitzerTheMoneyTrail,00.html | archive-date=22 March 2008 | df=dmy-all }}</ref><ref>{{Cite web |last=Nestmann |first=Mark |date=2014-11-11 |title=Anti-Smurfing Statute and Structuring |url=https://www.nestmann.com/will-the-irs-keep-its-latest-promise |access-date=2024-09-16 |publisher=The Nestmann Group |language=en-US}}</ref>
==Regulations== ===United States=== In the United States, the Bank Secrecy Act requires currency transaction reports (CTRs) to be filed for cash transactions involving coin or paper money valued at more than $10,000; it applies to both U.S. and foreign currencies.<ref> See generally {{usc|31|5313}}, {{usc|31|5324}}, 31 C.F.R. sec. 1010.311, and 31 C.F.R. sec. 1010.314.</ref> Contrary to popular misunderstanding, it does not apply to checks or electronic transactions.<ref>{{cite web | author=Federal Financial Institutions Examination Council | title=BSA/AML Examination & Compliance Manual | publisher=Federal Financial Institutions Examination Council | url=https://www.fdic.gov/news/financial-institution-letters/2021/fil21012c.pdf | date=February 2021 | access-date=7 March 2024}}</ref> Financial institutions suspecting deposit structuring with intent to avoid the law are required to file a suspicious activity report (SAR).<ref>See generally 31 C.F.R. sec. 1010.320.</ref> In 1986, the U.S. Congress enacted section 5324 of Title 31 of the United States Code,<ref>See section 1354(a) of the Anti-Drug Abuse Act of 1986, Public Law No. 99-570, 100 Stat. 3207, at 3207-22 (27 October 1986).</ref> which provides (in part):
<blockquote>No person shall, for the purpose of evading the reporting requirements of section 5313 (a) or 5325 or any regulation prescribed under any such section, the reporting or record keeping requirements imposed by any order issued under section 5326, or the record keeping requirements imposed by any regulation prescribed under section 21 of the Federal Deposit Insurance Act or section 123 of Public Law 91–508—[...]
(3) structure or assist in structuring, or attempt to structure or assist in structuring, any transaction with one or more domestic financial institutions.</blockquote>
Section 5324 further provides that a violation of this provision may be punished by a fine or up to five years in prison, or both.<ref>See 31 USC section 5324(d)(1).</ref> The filing of Form 8300 is required under Internal Revenue Code section 6050I.<ref>{{cite book | author=Internal Revenue Service |date=1 June 2006 |chapter=Part IV Examining Process; Chapter 26 Bank Secrecy Act; Section 13 Structuring |chapter-url=https://www.irs.gov/irm/part4/ch25s17.html |title=Internal Revenue Manual |url=https://www.irs.gov/irm/index.html |location=Washington, D.C. |publisher=US Treasury Department |oclc=37305546 |access-date=11 March 2008}}</ref>
Sums of money resulting from deposits of less than $10,000 may be seized after a warrant is issued based on a suspicious activity report. Legal proceedings, which may cost in the vicinity of $20,000 or more, may be required for an innocent party to retrieve his or her money. Reports in October 2014 by ''The New York Times'' of arbitrary seizures resulted in modification of Internal Revenue Service (IRS) practice to focus on investigations that "closely align" with IRS "mission and key priorities". Banks are not permitted to warn or advise customers unless the customer asks, but sometimes bank tellers will informally warn customers.<ref name = NYT102514 >[https://www.nytimes.com/2014/10/26/us/law-lets-irs-seize-accounts-on-suspicion-no-crime-required.html "Law Lets I.R.S. Seize Accounts on Suspicion, No Crime Required"] article by Sahaila Dewan in ''The New York Times'' 25 October 2014</ref>
===Outside the United States=== {| class="wikitable" ! width="120" | Jurisdiction ! width="100" | Single transaction ! Notes |- | Australia | AU$10,000 | Although there are no weekly or monthly limits, any parceling to evade the rules is a criminal offence.<ref>{{cite web | author=Australian Transaction Reports and Analysis Centre | author-link=Australian Transaction Reports and Analysis Centre | title=AUSTRAC Guideline No. 1: Suspect Transaction Reporting | url=http://www.austrac.gov.au/sites/default/files/documents/guideline_1_archived.pdf | format=.PDF | work=Financial Transaction Reports Act 1988 | publisher=Government of Australia | date=September 2002 | access-date=12 March 2008 | archive-date=19 November 2016 | archive-url=https://web.archive.org/web/20161119185930/http://www.austrac.gov.au/sites/default/files/documents/guideline_1_archived.pdf | url-status=dead }}</ref> |- | Brazil | ''varies'' | Depends on transaction type.<ref>{{cite web | author=Conselho de Controle de Atividades Financeiras | title=Lavagem de Dinheiro | url=http://www.coaf.fazenda.gov.br/conteudo/publicacoes | publisher=Ministério da Fazenda | language=pt | access-date=2008-03-12 | url-status=dead | archive-url=https://web.archive.org/web/20070703151241/http://www.coaf.fazenda.gov.br/conteudo/publicacoes | archive-date=3 July 2007 | df=dmy-all }}</ref> |- | Canada | CA$10,000 | All transactions totaling CA$10,000 within a 24-hour period are subject to reporting. Certain businesses may qualify for Alternative to Large Cash Transaction (ALCT) reporting.<ref>{{cite web|url=https://www.fintrac-canafe.gc.ca/guidance-directives/transaction-operation/Guide9/9-eng|title=Guideline 9: Alternative to Large Cash Transaction Reports to FINTRAC|work=fintrac.gc.ca|date=17 April 2009}}</ref> |- | Germany | €15,000 |€10,000 for goods deals.<ref>{{Cite web|url=https://www.gesetze-im-internet.de/gwg_2017/__10.html|title=§ 10 GwG - Einzelnorm|website=www.gesetze-im-internet.de|access-date=2019-05-26}}</ref> |- | Ireland | €10,000 |Per the 4th EU Anti-Money Laundering Directive (2017)<ref>{{Cite web | url=http://www.antimoneylaundering.gov.ie/website/aml/amlcuweb.nsf/0/B75E0654ED35762480257F230043F9FE/$File/2014%20Report.pdf | title=Annual Report on Money Laundering and Terrorist Financing 2014 | archive-url=https://web.archive.org/web/20160910074706/http://www.antimoneylaundering.gov.ie/website/aml/amlcuweb.nsf/0/B75E0654ED35762480257F230043F9FE/$File/2014%20Report.pdf | archive-date=2016-09-10}}</ref> |- | Italy | €12,500 |<ref>{{cite web | author=Dipartimento del Tesoro | title=Antiriciclaggio | url=http://www.dt.tesoro.it/Aree-Docum/Prevenzion/Antiriciclaggio/index.htm | publisher=Ministero dell'Economia e delle Finanze | language=it | access-date=2008-03-12 | url-status=dead | archive-url=https://web.archive.org/web/20080315134134/http://www.dt.tesoro.it/Aree-Docum/Prevenzion/Antiriciclaggio/index.htm | archive-date=15 March 2008 | df=dmy-all }}</ref> |- | Netherlands | €15,000 |<ref>{{cite web | author=FIU-Nederland | title=Meldingen Ongebruikelijke Transacties | url=http://www.justitie.nl/mot/ | publisher=Ministerie van Justitie | language= nl | access-date=12 March 2008}}</ref> |- | Sweden | €10,000 |<ref>{{cite web |author1=Europa Taxation |author2=Customs Union |name-list-style=amp | title=Cash controls | url=http://ec.europa.eu/taxation_customs/customs/customs_controls/cash_controls/index_en.htm | publisher=European Commission | date=21 December 2007 | access-date=12 March 2008}}</ref> |- | Switzerland | CHF 15,000 | Under Switzerland's self-regulatory approach, banks through the Swiss Bankers Association set and enforce their own due diligence rules under Art. 25 AMLA supervision.<ref>{{cite web | title=Federal Act on Combating Money Laundering and Terrorist Financing (Anti-Money Laundering Act, AMLA) Art. 25 | publisher=Swiss Federal Council | url=https://www.fedlex.admin.ch/eli/cc/1998/892_892_892/en#art_25 | language=en | date=1997 | access-date=2024-03-07}}</ref> Their code requires customer verification for cash transactions exceeding CHF 15,000 to prevent structuring of payments.<ref>{{cite web | title=Agreement on the Swiss banks' code of conduct with regard to the exercise of due diligence (CDB 20, Art. 4(2)(g)) | publisher=Swiss Bankers Association | url=https://www.swissbanking.ch/_Resources/Persistent/6/2/e/e/62eec3df0685e359c5a376dfca79dec8b908ea9c/SBA_Agreement_CDB_2020_EN.pdf | date=2020}}</ref> Merchants face a higher threshold, requiring customer identification for cash transactions above CHF 100,000, including when multiple related transactions reach this amount.<ref>{{cite web | title=Federal Act on Combating Money Laundering and Terrorist Financing (Anti-Money Laundering Act, AMLA) Art. 8a | publisher=Swiss Federal Council | url=https://www.fedlex.admin.ch/eli/cc/1998/892_892_892/en#art_8_a | language=en | date=1997 | access-date=2024-03-07}}</ref> |- | Thailand | US$58,000 |<ref>{{cite web| author=Netipoom Maysakun| title=MONEY LAUNDERING IN THAILAND| url=http://www.unafei.or.jp/english/pdf/PDF_rms/no73/12_p86-p94.pdf| archive-url=https://wayback.archive-it.org/all/20090320124620/http://www.unafei.or.jp/english/pdf/PDF_rms/no73/12_p86-p94.pdf| url-status=dead| archive-date=20 March 2009| publisher=The United Nations Asia and Far East Institute for the Prevention of Crime and the Treatment of Offenders| access-date=15 September 2008}}</ref> |}
==Other uses== The term "smurfing" is also applied to activity associated with controlled substances such as pseudoephedrine.<ref name="justice.gov">{{cite web |url=https://www.justice.gov/dea/concern/18862/ndic_2009.pdf |title=DEA |page=16 |publisher=Justice.gov |url-status=dead |archive-url=https://web.archive.org/web/20101017093604/http://www.justice.gov/dea/concern/18862/ndic_2009.pdf |archive-date=17 October 2010 |df=dmy-all }}</ref> In this context, the agent will make purchases of small, legal amounts from several drug and grocery stores, with the intent to aggregate the lot for use in the illegal production of methamphetamine.<ref name="justice.gov"/> Also, since the monthly pseudoephedrine purchase limits in US are too low for mass meth production, this practice often involves using multiple "smurfs".
As Robert Pennal of the Fresno Meth Task Force explains:
<blockquote>Then we started seeing "smurfing." Remember how the smurfs were little gatherers? We started getting calls from different retail stores that people were buying two or three packs—that's the most you can buy—and they went to one store, they bought three, they went to another store, bought three. We're seeing blister packs everywhere because they're sitting in the car, they're punching the pills out of the blister packs, they're putting them in the freezer bags and they're turning them over to chemical brokers.<ref>{{cite web |title=Transcript – The Meth Epidemic |url=https://www.pbs.org/wgbh/pages/frontline/meth/etc/script.html |work=Frontline |publisher=PBS}}</ref></blockquote>
==See also== * Salami slicing tactics, the phenomenon of achieving a larger action or result that would be difficult or illegal to carry out at once by splitting it into many smaller actions
==References== {{Reflist}}
==External links== * [https://web.archive.org/web/20060319192030/http://www.fincen.gov/fincenruling2005-6.pdf Financial Crimes Enforcement Network ruling on structuring]
{{Bank regulation in the United States}}
Category:Asset forfeiture Category:Banking terms Category:Commercial crimes Category:Money laundering Category:Tax evasion