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311 special measures: What financial institutions need to know

Terri Luttrell, CAMS-Audit, CFCS
December 5, 2025
0 min read

311 special measures

On November 13, 2025, the Financial Crimes Enforcement Network (FinCEN) issued a finding and notice of proposed rulemaking (NPRM) that includes the use of 311 special measures against several Mexican casinos, identifying them as foreign financial institutions of primary money laundering concern. According to FinCEN, these casinos are being exploited by organized crime groups to launder drug trafficking proceeds and other illicit funds for the Mexican Sinaloa Cartel, a major supplier of deadly fentanyl in the United States. Although 311 special measures are rarely issued, they are reserved for the most serious money laundering and national security threats and should not be taken lightly.

So, what exactly are 311 special measures? For community banks and credit unions, understanding how 311 special measures work and preparing for their potential impact has never been more critical. Although special measures are not often used by FinCEN, when issued, they can have a significant effect on banking relationships, customer due diligence processes, and your overall AML compliance program.

What are 311 special measures?

Authorized under Section 311 of the USA PATRIOT Act, 311 special measures allow the U.S. Department of the Treasury, through FinCEN, to apply targeted regulatory restrictions to foreign entities or jurisdictions believed to pose significant money laundering risks. Special measures are discussed thoroughly in the Federal Financial Institutions Examination Council (FFIEC) BSA/AML Examination Manual.

These special measures escalate in severity and include:

  1. Requiring additional recordkeeping and reporting on specific transactions.
  2. Obtaining information on beneficial ownership of certain accounts.
  3. Heightened due diligence on payable-through accounts.
  4. Collecting information on foreign financial institutions tied to correspondent accounts.
  5. Prohibiting U.S. financial institutions from opening or maintaining correspondent or payable-through accounts with the designated party.

In the recent case of Mexican casinos, FinCEN proposed the fifth and most severe special measure. If finalized, U.S. banks and credit unions would be prohibited from maintaining any direct or indirect financial relationships with the casinos, including transaction processing. For institutions involved in cross-border transactions, the implications are immediate and significant.

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Why these designations matter to community financial institutions

Even if your institution does not knowingly bank casinos or offer international services, the ripple effects of a 311 special measures designation can reach you. For example, a business customer with ties to Mexico could inadvertently transfer funds through accounts associated with a designated casino. If your AML systems are not configured to detect these linkages, your institution may face exposure.

These risks increase in institutions offering:

  • Wire transfers involving foreign counterparties
  • Correspondent banking relationships
  • High-risk customer types, such as money service businesses or cash-intensive operations

In these cases, failing to monitor transactions against the backdrop of a 311 designation could result in regulatory scrutiny or missed opportunities to file timely suspicious activity reports (SARs).

 

FinCEN’s concerns around the Mexican casinos

FinCEN’s November notice cited evidence that certain casinos and gambling businesses in Mexico were being used to integrate proceeds from drug trafficking, corruption, and human smuggling into the formal financial system. These casinos reportedly allowed third parties to deposit and withdraw funds in others’ names, lacked adequate AML controls, and showed repeated patterns of activity consistent with bulk cash smuggling and value layering.

This behavior highlights a broader trend: bad actors are increasingly utilizing complex, cross-border financial networks to conceal the origins of illicit funds. For AML compliance teams, it’s a stark reminder that your institution’s risk assessment must account for international designations, even if you don’t operate abroad.

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Responding to 311 special measures

Preparing for 311 designations begins with proactive risk management. Institutions should ensure their AML/CFT programs can adapt quickly when FinCEN issues new advisories. Consider the following actions:

  • Update your customer due diligence (CDD) program to flag relationships that may intersect with jurisdictions or industries affected by relevant regulations.
  • Review and revise transaction monitoring scenarios to include geographic risk indicators tied to new 311 designations, such as regions in Mexico with known cartel activity.
  • Train AML and fraud teams on recent designations and the operational impact of the five levels of special measures.
  • Document your institution’s response plan, including internal communication strategies and escalation procedures for potential exposure.

Institutions that demonstrate to regulators their preparedness to respond quickly and effectively to FinCEN’s use of 311 special measures reinforce their commitment to compliance and reduce reputational risk.

Beyond compliance

While 311 designations may seem punitive, they can also be used as a catalyst to evaluate your institution’s overall financial crime risk strategy. FinCEN’s action against the Mexican casinos highlights the need for robust internal controls, not only to comply with regulations, but to protect your institution from being an unwitting conduit for criminal activity.

These designations can also serve as a valuable training opportunity. Use real-world examples, like the Mexican casino case, to conduct tabletop exercises or scenario testing. What would happen if your institution discovered a customer sending wires to one of the named casinos? Would your staff recognize the risk? Would you file a SAR?

By aligning your AML efforts with FinCEN’s enforcement priorities, you build credibility with regulators and position your institution as a stronghold against illicit finance.

Stay vigilant

FinCEN may not use 311 designations often, but when they do, they matter. Financial institutions must closely monitor these actions because they often signal shifting regulatory priorities and geopolitical developments with direct consequences for risk assessments, due diligence, and monitoring programs.

FinCEN’s use of 311 special measures is a reminder that compliance is not static. Financial crime risks shift rapidly, and institutions must be equipped to adjust their policies, systems, and staff training in real-time. By understanding the implications of 311 actions, like those targeting Mexican casinos, and acting accordingly, financial institutions can strengthen their compliance posture and protect their customers and communities.

About the Author

Terri Luttrell, CAMS-Audit, CFCS

Compliance and Engagement Director
Terri Luttrell is a seasoned AML professional and former director and AML/OFAC officer with over 20 years in the banking industry, working both in medium and large community and commercial banks ranging from $2 billion to $330 billion in asset size.

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