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Why did the Cayman authorities need to revamp/update its existing AML regulations and what was the catalyst?
The new Anti-Money Laundering Regulations, 2017 of the Cayman Islands (AML Regulations), which came into force on 2 October 2017 and the Proceeds of Crime Law (2017 Revision) (PCL) which came into force in May 2017 have together expanded the scope of Cayman Islands anti- money laundering regime (AML), including application to investment funds generally and specifically to (i) private equity funds and other closed-ended funds (e.g. real estate funds) and (ii) structured finance vehicles that are not registered with the Cayman Islands Monetary Authority (CIMA).
The main aim behind the changes to the AML Regulations has been to more closely align Cayman Islands’ AML regime to the Financial Action Task Force 2012 recommendations. The AML Regulations introduce a new risk-based approach to AML in the Cayman Islands, including requiring persons subject to the AML Regulations (Financial Service Providers) to take steps appropriate to the nature and size of their business to identify, assess, and understand its money laundering and terrorist financing risks in relation to a customer, the country or geographic area in which the customer resides or operates, the Financial Service Provider’s products, service and transactions, and the Financial Service Provider’s delivery channels.
Could you provide a few salient points on the gaps that have been addressed in the new AML regime?
The scope of the AML Regulations is still defined by reference to “relevant financial business”. Persons undertaking “relevant financial business” in the Cayman Islands must comply with the requirements of the AML Regulations. The definition of “relevant financial business” that was included in previous versions of the anti-money laundering regulations has been removed from the AML Regulations and has instead been placed in Section 2 of the PCL. The definition continues to cover (emphasis added) “mutual fund administration or the business of a regulated mutual fund within the meaning of the Mutual Funds Law (2015 Revision)” which covers all funds registered with and regulated by CIMA. The definition had also covered and continues to cover investment managers licensed by or registered with CIMA (e.g. those who have applied for and obtained a SIBL Exemption). However, Section 2 and Schedule 6 of the PCL now extends the meaning of “relevant financial business” to cover activities which are “otherwise investing, administering or managing funds or money on behalf of other persons.”
The net effect of expanding the meaning of relevant financial business to include activities of “otherwise investing, administering or managing funds or money on behalf of other persons,” is that now all unregulated investment entities (as well as regulated investment entities) are covered and will need to maintain AML procedures in accordance with the AML Regulations.
AML Procedures
Going forward all Cayman unregulated investment entities (as well as regulated investment entities) will be required to have the following AML procedures in place:
- identification and verification (KYC) procedures for its investors/clients;
- adoption of a risk-based approach to monitor financial activities;
- record-keeping procedures ;
- procedures to screen employees to ensure high standards when hiring;
- adequate systems to identify risk in relation to persons, countries and activities which shall include checks against all applicable sanctions lists;
- adoption of risk-management procedures concerning the conditions under which a customer may utilise the business relationship prior to verification;
- observance of the list of countries, published by any competent authority, which are non-compliant, or do not sufficiently comply with the recommendations of the Financial Action Task Force;
- internal reporting procedures (i.e. appointment of a money laundering reporting officer and deputy money laundering reporting officer);
- and such other procedures of internal control, including an appropriate effective risk- based independent audit function and communication as may be appropriate for the ongoing monitoring of business relationships or one-off transactions for the purpose of forestalling and preventing money laundering and terrorist financing.
In order to allow unregulated investment entities not previously subject to the AML/ CFT regime to implement appropriate procedures (or delegation arrangements) to comply, the AML Regulations have been amended to provide a grace period until 31 May 2018 within which to assess their existing AML/CTF procedures and to implement policies and procedures which are in compliance with the AML Regulations.
What are the enforcement powers that CIMA will be able to bring to bear for those entities who fail to comply?
The Monetary Authority (Amendment) Law, 2016 (the Amendment Law) which came into force on 15th December 2017 gives CIMA the power to impose administrative fines for non- compliance on entities and individuals who are subject to Cayman Islands regulatory laws and/or the AML Regulations.
For a breach prescribed as minor fine would be CI$5,000 (approximately US$6,000). For a breach prescribed as minor the Authority also has the power to impose one or more continuing fines of CI$5,000 each for a fine already imposed for the breach (the “initial fine”) at intervals it decides, until the earliest of the following to happen:
- the breach stops or is remedied;
- payment of the initial fine and all continuing fines imposed for the breach; or
- the total of the initial fine and all continuing fines for the breach reaches CI$20,000 (approximately US$24,000).
For a breach prescribed as serious, the fine is a single fine not exceeding: (a) CI$50,000 (approximately US$61,000) for an individual; or (b) $100,000 (approximately US$122,000) for a body corporate. For a breach prescribed as very serious, the fine is a single fine of not exceeding: (a) CI$100,000 (US$122,000) for an individual; or (b) CI$1,000,000 (US$1,220,000) for a body corporate.
The Monetary Authority (Administrative Fines) Regulations, 2017, which came into force immediately after the Amendment Law came into force sets out, among other things, rules and guidance regarding the amount of fines, different categories of breaches, the criteria for exercising fine discretions, including procedures of imposing fines, appeals, payment and enforcement.
How would you assess the overall improvements made in the new AML regulations, vis-à-vis other global funds jurisdictions?
The AML Regulations are intended to more closely align Cayman Islands’ AML regime to the Financial Action Task Force 2012 recommendations which are intended to set the standards and promote effective implementation of legal, regulatory and operational measures for combating money laundering, terrorist financing and other related threats to the integrity of the international financial system. The changes introduced by the AML Regulations enhances the Cayman Islands’ AML regimes adherence to such international standards and its reputation as one of the premier offshore financial centres.
What advice would you give to fund managers who rely on their service providers to handle AML/KYC checks?
Fund managers should check (i) whether the AML regime being applied in respect of their Fund is the Cayman AML regime or the regime of jurisdiction recognised as having an equivalent AML regime, (ii) if it is the latter whether or not the relevant delegate is actually subject to the AML regime of that jurisdiction, and (iii) whether or not the delegate has the requisite personnel (in terms of numbers, training and experience) to maintain the AML / CFT procedures on the Fund’s behalf.
Introduction
In a research paper on initial coin offerings (“ICOs”) published in December 2017, it was noted that fewer projects had reached their financing goals in November 2017 than in the previous months. It was also noted that most ICOs lacked a clear reason for using tokens and blockchain technology. Statistics published in the same research paper illustrated the fact that ICOs related to blockchain technology were among the most successful, together with projects targeting data storage, finance and online gaming. At the end of 2017, it was clear from the same statistics that most projects still remained in the “idea stage”, with very few prototypes and even fewer running platforms. Yet the appetite for ICOs has seemingly not diminished, as illustrated by the high number of events, publications and initiatives.
What this first wave of ICOs brought, however, is awareness of the issues to be addressed by regulators, lawyers and other advisors and service providers working with blockchain start-ups. It became clear that the blockchain entrepreneurs could not continue to rely on purely technological solutions ignoring existing legal and regulatory problems. As part of our series on FinTech, after discussing some of the risk factors related to cryptocurrencies (see Top Ten Risks for the Crypto-Currency Investor: A View from the Cayman Islands) and Cayman Islands laws which may be triggered in connection with ICOs (see Cayman Islands Legal Perspective on the Regulation of Initial Coin Offerings (ICOs)), this issue will focus on some best practices for blockchain start-ups in the Cayman Islands in preparation of an ICO.
Do Categories of Tokens Matter?
The term ICO refers to an “initial coin offering”, i.e. a public sale of digital tokens or coins, to which various rights may be attached. Although there is no generally recognized classification, industry experts and some regulators have started referring to several categories of tokens based on the underlying economics, as determined on a case-by-case basis after review of the white paper published by the founder team.
- Payment Tokens or Cryptocurrencies: Modeled after Bitcoin (BTC), some tokens (or coins) have no rights attached giving the holders a claim against the issuer, but they are designed to be limited in quantity, similar to precious metals, so that their value may increase based on their adoption by various users. Their value is also tied to the benefits provided by the blockchain platform they are built on (e.g., security, decentralization, disintermediation, anonymity or pseudo-anonymity). Although Mastercoin is generally regarded as the first ICO, Ethereum (ETH) was more successful in 2014, raising 25,000 BTC from investors in the first two weeks of the public sale and later on developing Ethereum as the largest platform for ICOs.
- Utility Tokens: Most ICOs sell tokens which are designed to provide access to an application or service on a blockchain-based platform. Such tokens may be “burned” upon use, but new tokens can generally be purchased on the same platform. Such tokens are the blockchain version of digital coupons, but with the additional benefit of being tradeable securely and pseudo-anonymously (and benefiting from a potential increase in value if the number of users of the platform increases).
- Asset Tokens: Tokens which give the holder a portion of the profits of the business or other economic rights are considered to be securities in several jurisdictions, i.e. a blockchain version of equity interests, debt instruments, etc.
- Hybrid or Other Tokens: Any combination of the above can generally be considered a hybrid token; this may trigger an overlap of applicable regulations.
In some cases, the same blockchain project generates two or more categories of tokens with different rights attached, which are issued in the different stages of the project. In other cases, investment contracts for future tokens (SAFT, SAFTE, and several other variations) are signed before an issuance, enabling the founder team to develop a working model of the blockchain project before any “public” sale. Finally, some blockchain start-ups do not offer any type of coins or tokens.
The assumption would therefore be that issuing tokens in a certain “category” would trigger regulation, while another “category” may not. Such assumption, however, if not confirmed by review by specialist legal counsel, exposes the issuer to substantial legal and regulatory risks, especially since the regulators’ position, as expressed through “Guidance Notes” or unofficial statements, may change over time. Also, ICO founder teams are generally based in multiple jurisdictions, and promotion efforts may target investors from various countries. Without realizing it, ICO founder teams may in fact be required to comply with several very different regulatory environments.
What Guidance for Cayman Companies Undertaking an ICO?
As at the date of this publication, there is still no specific regulation in the Cayman Islands addressing ICOs and blockchain technology. However, several of the existing laws and regulations are applicable to blockchain start-up companies and their pre-ICO and ICO operations. Also, a recent series of statements have been made by the Cayman regulatory authority, which generally encourage the blockchain ecosystem development. The Cayman Islands Monetary Authority (“CIMA”) itself has unofficially commented that cryptocurrencies, ICOs and FinTech generally are here to stay and that although the Cayman Islands Securities Investment Business Law (2015 Revision) (SIBL) does not include cryptocurrencies or tokens in its list of securities , CIMA may be issuing further guidance to issuers and promoters as they increasingly look to access “real money” through the offshore funds industry.
As things currently stand, ICO founder teams and promoters looking at the Cayman Islands for incorporation of their company or companies should be aware of the following best practices:
1. Have a Real Project. Setting up a Cayman Islands exempt company for your ICO (the “Company”) is not complicated and it usually only takes a few business days. However, a successful project requires more than a legal entity. Based on your business model and strategy, the legal vehicle which may be best suited for your purposes may also be different: for example, a foundation company instead of a regular exempt company may work best if your purpose is to create a stand-alone blockchain ecosystem, not “owned” by a particular person or group of persons. For more details regarding Cayman Islands foundation companies, see our alert Foundation Companies can now be incorporated in the Cayman Islands. Generally, the founder team should be prepared to answer the following questions:
-
- What are the key features of the service/platform to be developed?Which market participants (investors) will the ICO target? Are there any restrictions regarding investors? Are the founders planning to bring in pre-ICO investors on a private placement basis (through SAFT agreements or otherwise)?
- What is the project timeline (ICO phases, milestones, etc.)?
- What technologies will be used (new or existing, open source project vs. blockchain patent envisaged, etc.)
- Which cryptocurrencies will be accepted? Will the ICO have a floor or a cap?
- Have the funds already been allocated to a specific project? How will surplus funds be handled?
- Will a token be created in the course of the ICO?
- Which functionalities are planned for the token? What rights will be attached?
- At which point, by whom and in which manner will the token be transferred to the investors?
- How can the token be transferred (compatible wallets, technical standards)?
- Is the token already functional at the time of transfer? If yes, to what extent?
- How and where can the token be acquired or sold after the ICO (secondary market platforms)?
- Will it be possible to use the tokens to buy goods or services or make payments to third parties?
- Are there plans for the Company to buy back tokens?
- Which service providers will be involved with the ICO?
2. Have a Real Lawyer. A lot of the information generally available on the web about setting up a company or opening up a bank account in the Cayman Islands is inaccurate. Even going to a real CIMA-regulated corporate service provider may not be sufficient in itself, as they will only be able to help with setting up the company and certain basic compliance issues. It is imperative that founder teams use legal counsels who regularly operate within the ICO space and have detailed, specialist knowledge of the regulatory landscape. As shown by the recent wave of enforcement actions and subpoenas in the United States , regulators will not hesitate to go after ICOs if not properly carried out, and the founder team may be forced to return funds, raise compliance standards or face sanctions.
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Notes
- EY research: initial coin offerings (ICOs), December 2017, in which Ernst & Young studied 372 ICOs having raised US$3.7b in funds.
- Such as FINMA, the Swiss regulator – see https://www.finma.ch/en/news/2018/02/20180216-mm-ico-wegleitung/
- From the Ethereum self-published statistics – see https://blog.ethereum.org/2014/08/08/ether-sale-a-statistical-overview/
- It has been pointed out by many that although blockchain gives the impression of anonymity, in reality most wallets can be linked to a physical identity and in reality only offer a sort of pseudo-anonymity. For example, KYC/AML obligations apply to all cryptocurrency exchange platforms and buying cryptocurrencies on such exchanges is subject to the user providing government-issued identification.
- For this reason, it may be considered that all tokens are in reality bought for speculative purposes and therefore all tokens (even utility tokens) should be treated as securities in the US (among other jurisdictions).
- For example, China and South Korea have banned all ICOs. Other regulators have issued warnings to investors and guidance notes, but reserve the possibility to adopt a specific ICO-related regulation or take action at a later stage.
- Quote from Ms. Heather Smith, Head of Investments & Securities Division of the Cayman Islands Monetary Authority (CIMA), during the Opalesque 2018 Cayman Roundtable.
- Schedule 1 of Cayman Islands Securities Investment Business Law (2015 Revision) (SIBL) exclusively refers to shares (including stock of any kind in the share capital of a company, interests in a limited partnership, or units of participation in a unit trust), instruments creating or acknowledging indebtedness such as debentures, debenture stock, loan stock, bonds, certificates of deposit and any other instruments creating or acknowledging indebtedness, instruments giving entitlements to securities, certificates representing certain securities, options, futures and contracts for differences.
- Quote from Ms. Smith during the Opalesque 2018 Cayman Roundtable, see FN vii above.
- On 24 August 2017, following a request for information from the Securities and Exchange Commission (SEC), Protostarr cancelled its ICO and refunded its investors. On 4 December 2017, the SEC obtained an emergency asset freeze to halt the ICO of Quebec-based PlexCorps. On 11 December 2017, the SEC ordered Munchee Inc. to cease and desist its ongoing token sale. On 17 January 2018, the Enforcement Section of the Massachusetts Securities Division of the Office of the Secretary of the Commonwealth brought an enforcement action against Caviar, a Cayman Islands company, and its founder. On 30 January 2018, the SEC obtained a court order to halt the ICO of Dallas-based AriseBank for allegedly conducting a fraudulent ICO.
The Cayman Islands Monetary Authority (CIMA) conducts inspections to ensure that regulated entities comply with applicable laws and regulations. We set out below a general guide on inspections by CIMA.
1. Purpose of Inspections
- To assess compliance with regulatory requirements.
- To evaluate risk management practices.
- To verify financial records and reports.
- To assess overall operational effectiveness.
2. Types of Inspections
- Documentation: Ensure all relevant records, including financial statements, policies, and procedures
are up-to-date and accessible. - Staff Training: Make sure staff are aware of the inspection process and their roles.
- Internal Review: Conduct internal audits to identify and rectify any compliance issues before the
inspection.
4. Inspection Process
- Notification: CIMA will inform the entity about the inspection and its scope.
- On-site Inspection: CIMA inspectors visit the premises (or have an opening call to speak with Directors, Senior Officers (e.g. Compliance Officer) and examine records, interview staff, and review operational practices.
- Exit Meeting: An initial feedback session may be held at the end of the inspection to discuss
observations
5. Post-Inspection Actions
- Report Issuance: CIMA will issue a report outlining findings and any required corrective actions.
- Remediation Plan: Entities may need to develop a plan to address identified issues and submit it to CIMA.
- Follow-Up Inspections: Depending on the outcome, CIMA may conduct follow-up inspections to ensure compliance.
6. Key Compliance Areas
- Anti-Money Laundering (AML) regulations.
- Risk management frameworks.
- Governance and operational procedures.
- Financial reporting and disclosures.
7. Best Practices
- Keep clear and organized records.
- Maintain ongoing communication with CIMA.
- Foster a culture of compliance within the organization.
- Regularly review and update policies in line with new regulations
8. Resources
- CIMA’s official website provides guidelines, templates, and regulatory updates.
- Engage with industry associations for insights and support.
Further Assistance
This publication is not intended to be a substitute for specific legal advice or a legal opinion. If you require further advice relating to CIMA’s regulatory inspections, please contact us. We would be delighted to assist.
E: gary.smith@loebsmith.com
E: robert.farrell@loebsmith.com
E: ivy.wong@loebsmith.com
E. elizabeth.kenny@loebsmith.com
E: cesare.bandini@loebsmith.com
E: vivian.huang@loebsmith.com
E: faye.huang@loebsmith.com
E: yun.sheng@loebsmith.com
Corporate governance in the Cayman Islands primarily follows international standards and best practices, influenced by various factors including legal frameworks, regulatory bodies like the Cayman Islands Monetary Authority (“CIMA”), and market expectations. We set out below some of the key principles that regulated entities in the Cayman Islands are generally expected to adhere to:
1. Transparency
Entities which are regulated by CIMA should provide accurate and timely information to stakeholders, including shareholders (or interestholders in a limited partnership) and regulators. This includes financial reporting, compliance filings, and any material changes that could affect shareholders/interestholders.
2. Accountability:
The board of directors of a Cayman Islands company (“Board”) may delegate some of its responsibility to others (e.g. the Board of Directors of a Fund delegating management of its assets to a Fund Manager) but is nonetheless required to exercise supervisory oversight and control over those delegated functions and moreover the Board should be accountable for its actions and decisions. This includes setting clear roles and responsibilities, establishing performance metrics, and ensuring that there are mechanisms in place to evaluate the performance of the Board and management.
3. Fairness
Depending on the subject matter of the rights and entitlements in question, shareholders (particularly those in the same class) should be treated fairly and/or equitably, with their rights respected and any conflicts of interest managed appropriately.
4. Board Effectiveness:
The Board should be composed of qualified individuals with the appropriate diverse skills, experience, and independence to make informed decisions. Regular assessments of Board performance and training opportunities are encouraged to enhance effectiveness.
5. Risk Management:
Effective risk management frameworks should be in place to identify, assess, and mitigate the internal and external risks that the company faces. This includes financial, operational, legal, and reputational risks.
6. Regulatory Compliance:
Companies must comply with the legal and regulatory frameworks applicable in the Cayman Islands, including the Companies Act, the Beneficial Ownership Transparency Act, the Securities
Investment Business Act, the Mutual Funds Act, the Private Funds Act, and relevant guidelines issued by regulatory bodies such as CIMA.
7. Ethical Standards
Companies should promote and adhere to high ethical standards and conduct business with integrity. This involves establishing codes of conduct, policies to deal with conflict of interest appropriately, anti-corruption policies, and procedures for reporting unethical behaviour.
By following these principles consistently, Cayman Islands regulated entities can effectively enhance their corporate governance practices, comply with Cayman Islands legal requirements and thereby avoid fines and penalties, align with best practices globally, and foster trust among their stakeholders.
This publication is not intended to be a substitute for specific legal advice or a legal opinion. For specific advice on Corporate Governance, please contact your usual Loeb Smith attorney or any of the following:
E: gary.smith@loebsmith.com
E: robert.farrell@loebsmith.com
E: elizabeth.kenny@loebsmith.com
E: edmond.fung@loebsmith.com
E: vivian.huang@loebsmith.com
E: faye.huang@loebsmith.com
E: yun.sheng@loebsmith.com
Overview
Christal is based in Loeb Smith’s Cayman Islands Office where her role focuses on providing board support and guidance to Governing Boards and Committees in respect of Corporate Governance matters for Cayman Islands and BVI investment funds and companies. In alignment with regulatory frameworks, she assists clients to maintain effective board oversight and control with meetings and other best practices in corporate governance.
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