• Ian Abdilla and Brian Paul Camilleri testified in the case involving Raymond Aquilina, Yorgen Fenech, and notary Mario Bugeja on the 24th of April.
• Abdilla recounted how he was instructed not to hand an FIAU report concerning Melvin Theuma to Raymond Aquilina, who was in charge of the investigation.
• An appointment set up for Abdilla and Aquilina to meet Fenech was aborted abruptly.
• The investigation was being delayed by difficulties in obtaining information from abroad.

A court has heard today how the then Police Commissioner Lawrence Cutajar specifically ordered that a sensitive financial report be kept hidden from a lead investigator in 2018. 

Testifying in the proceedings against former Superintendent Raymond Aquilina, Yorgen Fenech, and notary Mario Bugeja, the former lead of the police’s Economic Crimes Unit, Ian Abdilla, recounted how Cutajar directly ordered him to bypass Aquilina.

Fenech stands accused of money laundering and complicity in the corruption of a public officer, while Aquilina is facing charges of corruption, leaking official secrets, money laundering and perjury. Both men, together with notary Mario Bugeja who is also charged with money laundering, have pleaded not guilty to the charges.

“Deep discomfort”

Abdilla told Magistrate Lara Lanfranco on Friday that he was instructed to personally retrieve a Financial Intelligence Analysis Unit (FIAU) report concerning Melvin Theuma. According to Abdilla, Cutajar was explicit: the report was for his eyes only, and he was “not to hand it to Raymond Aquilina”.

Abdilla said that Cutajar’s order caused him deep “discomfort” as Aquilina was officially responsible for the anti-money laundering section of the Economic Crimes Unit. Abdilla testified that he repeatedly challenged the commissioner on the matter at the time, insisting that if there was a lack of trust in Aquilina, he should be removed from his post entirely. 

It emerged in court today that Aquilina had maintained a personal relationship with Fenech that was never officially declared. Abdilla testified that he later found out about the relationship through the media. 

The tension reached a breaking point just days before the high profile raid on Melvin Theuma, when Aquilina allegedly revealed intimate knowledge of the suspect’s medical history, claiming that Theuma was undergoing cancer treatment. The detail left Abdilla questioning how a sidelined investigator possessed such specific intelligence.

A cancelled meeting

The internal friction within the Economic Crimes Unit coincided with critical moments in the 17 Black Investigation, which officially began when the police opened the file in March 2018. Abdilla testified that after a newspaper report identified Yorgen Fenech as the owner of the mysterious UAE-registered company, he insisted on questioning the businessman immediately. 

At that point, disclosure laws had recently been introduced, requiring the police to challenge suspects under interrogation on the basis of evidence. Despite only having an FIAU report in hand – official bank documents had not yet been received from abroad – Abdilla argued that the public allegations were enough to warrant an interrogation. 

According to the testimony, an appointment was set up for Abdilla and Aquilina to meet Fenech at his own office, as instructed by then Deputy Police Commissioner Silvio Valletta. Abdilla believes that this meeting was arranged by Raymond Aquilina. 

However, the interrogation never took place. 

As the police team was driving toward the meeting, specifically as they approached the traffic lights near Paceville, they received a phone call informing them that Fenech “couldn’t speak to us because he was sick”. The meeting was aborted and Fenech was not arrested until much later, the witness said. 

While the financial probe into 17 Black stalled as Europol and Interpol requested rogatory letters, leading to the opening of a magisterial inquiry in September 2018, the Economic Crimes Unit was simultaneously navigating multiple investigations. Abdilla revealed that investigators were under “intense” pressure to move against Melvin Theuma, who was under investigation for financial crimes. 

Despite this pressure, Abdilla said that he and investigator Nicholas Vella, Aquilina’s subordinate, reportedly resisted a premature arrest. They argued that the FIAU report into Theuma’s activities, which they held at the time, was insufficient on its own to sustain his arrest. They insisted on waiting a few more weeks to gather more concrete evidence.

International scope

The scope of the investigation extended beyond Theuma and Fenech. The 17 Black investigation, which Aquilina was officially leading, included a list of high-profile “persons of interest,” including former Minister Konrad Mizzi, Keith Schembri, Karl Cini, and Brian Tonna. 

To track the flow of money, the police had to engage in a lengthy international process, requesting rogatory letters, signed off by the presiding magistrate Charmaine Galea, to be sent to authorities in the UAE, Latvia, and Panama to track Fenech’s accounts. Abdilla confirmed that while some of these requests were successful, the investigation was often hindered by the requirement for formal translations and the refusal of foreign countries to share intelligence without official judicial requests. 

A question raised during the testimony concerned the official letters sent to the UAE to track one of Fenech’s accounts linked to 17 Black. Abdilla confirmed that there had been a “mistake” in some of these letters, for which Aquilina was responsible. When questioned by the prosecution, Abdilla admitted he was unsure if the error was a “genuine mistake or intentional”.

The court heard that Raymond Aquilina eventually handed over the 17 Black investigation files in April 2020 to inspectors Brian Paul Camilleri and Keith Vella.

Inspector Brian Paul Camilleri, a financial crimes investigator with the police and the lead investigator on this case, also took the witness stand on Friday. He confirmed the chronology of the investigation and the succession of investigators involved in the case.

In reply to a parliamentary question from MP Graham Bencini, Finance Minister Clyde Caruana revealed that the agreements will bring in €34,230,949 in taxes, alongside a further €3,044,161 in additional penalties imposed under a progressive rate schedule (15%, 20% or 25%, depending on the amount of tax owed).

The 11 agreements include both individuals and companies. No details were given on the individuals or entities that benefited from the mechanism.

As of 15 April 2026, 7 of the 11 agreements have been settled in full; two will be paid within six months, one within nine months, and another is subject to a structured payment programme spanning 12 years.

Caruana said that no tax or additional penalty imposed under the Act had been reduced. However, where taxpayers were eligible, partial remission of administrative penalties and interest was granted in line with existing policies.

Under the framework, introduced through Bill 142, taxpayers may enter into agreements with the Commissioner for Tax and Customs to regularise tax offences by paying penalties and outstanding dues, thereby avoiding criminal prosecution for the offences covered by the settlement.

The mechanism also applies to certain “connected breaches” and predicate offences linked to the tax offence, such as money laundering and fraud.

The bill was introduced and approved within 12 days in August 2025. It was tabled in Parliament on the same day as Bills 143 and 144, two parts of a controversial planning reform package that has since dominated public discourse and sparked protests.

Amphora Media has documented several high-profile beneficiaries of the mechanism, including: Christian Borg, a car dealer with ties to Prime Minister Robert Abela, charged in a €1.4 million tax evasion and money laundering case; Aron Mifsud Bonnici, a lawyer and former advisor to Konrad Mizzi, charged in a €1.6 million case and separately facing charges in the Vitals Hospitals case; and Nigel and Mikaela Scerri, the accountants behind the firm Ennesse, who were arraigned in January 2025 after authorities reportedly discovered a €1.5 million discrepancy in their tax and VAT declarations.

It is unclear whether the mechanism has been extended to any individuals or entities linked to the major tax fraud investigation involving a VAT carousel.

In 2023, it was reported that Martin Farrugia and Henriette Cassar were accused of defrauding the VAT system, allegedly to the tune of around €62 million.

The investigation, known as Operation Panthera, reportedly covers the period 2012–2019 and encompasses companies linked to the contractor — including NCCF, MAM Construction Ltd, and MWF Construction Ltd — which are said to have under-declared substantial sales and VAT payable.

The pair have pleaded not guilty, and the case is ongoing. 

Amphora Media has been informed that the police are aware of businesses involved in the scheme.

The investigation, published in March 2025, exposed the inner workings of two massive investment fraud networks operating out of call centres in Israel, Eastern Europe, and Georgia. Amphora Media’s contribution focused on Malta’s role in the scheme, revealing how Maltese-registered companies, OpenPayd, were key in transferring funds extracted from victims.

Drawing on an unprecedented leak of nearly two terabytes of data — thousands of hours of recorded calls, screen recordings, and internal spreadsheets — the reporting team documented how at least 32,000 people across the globe were deceived into handing over approximately €230 million in fraudulent “investments.”

More recently, two Turkish companies owned by Ozan Özerk, the founder of OpenPayd, were under investigation for facilitating the laundering of criminal assets.  This company is not under investigation in Türkiye.

Cristian Lupșa, Chair of the Preparatory Committee of the European Press Prize, said: “What stood out again this year is the quality of journalism being produced across Europe, in newsrooms large and small, often under pressure and with limited resources. The range of entries reflects something important: all stories have a place here, from large cross-border collaborations to deeply reported local pieces that matter enormously to the communities they serve. What these stories show, collectively, is that journalism still holds space for complexity, for context, and for human experience. It remains a source of understanding, accountability, and, in many ways, hope.”

You can read the full investigation here.

For years, the number of money-laundering prosecutions in Malta remained relatively modest. Figures tabled in parliament by Jonathan Attard, in response to questions from Adrian Delia, show that in 2018, only 12 individuals were charged, rising slightly to 14 in 2019. 

By 2024, however, that number had surged to 116 individuals across 44 cases – the highest level on record. In 2025, the figure dropped, falling to 61 individuals across 37 cases.

The shift came after Malta was placed on the FATF grey list in June 2021. Malta was removed from the list in June 2022 following rapid reforms. The FATF’s recommendations focused on the transparency of ultimate beneficial owners (UBOs), the effectiveness of anti-money laundering controls, and tax evasion investigations.

In 2020, standalone money-laundering cases were more common (27). However, cases accompanied by a predicate offence – which is the separate criminal act that generated the illicit funds – have increased. 

In 2021, cases accompanied by predicate offences were 87, up from just 1 in the previous year. By 2024, 114 cases were tied to predicate offences. In 2025, that number was 61. 

The Minister’s breakdown of predicate offences identifies fraud as the primary driver of money laundering proceedings, accounting for 77 instances.

This is followed closely by: Misappropriation (39), Aggravated drug possession (17), Corruption (13), Drug Trafficking (12), Tax Evasion (11) and Organised Crime (11).

Just as these complex, multi-charge cases peak, Malta has enacted Bill 142, which introduces a formal mechanism for out-of-court settlements for breaches of Malta’s tax laws and related crimes.

The bill was introduced and approved over 12 days in August 2025. It was tabled in Parliament on the same day as Bills 143 and 144, two parts of a controversial planning reform package that has since dominated public discourse and sparked protests.

So far, lawyer Aron Mifsud Bonnici, car dealer Christian Borg, and accountants Nigel and Mikaela Scerri have used the settlement mechanism in their respective million-euro tax-evasion and money-laundering proceedings.

Malta already has a significant problem with uncollected taxes. Official figures show that as of 2024, Malta has accumulated over €8 billion in uncollected tax, €6.1 billion in VAT and €2 billion in other taxes. The government has written off over €6.6 billion of that figure.

Under this framework, taxpayers may enter into agreements with the Commissioner for Tax and Customs to regularise tax offences by paying penalties and outstanding dues, thereby avoiding criminal prosecution for the offences covered by the settlement.

The mechanism also applies to certain “connected breaches” and predicate offences, linked to the tax offence, such as money laundering and fraud.

It is already being implemented. In reply to a series of parliamentary questions by MP Adrian Delia, Finance Minister Clyde Caruana confirmed that the Malta Tax and Customs Administration (MTCA) has received several applications under the new law and is currently processing them. 

This will apply to all the 11 cases of tax evasion listed – and a host of other ongoing cases, including a €62 million VAT carousel fraud case.

Under this framework, taxpayers may enter into agreements with the Commissioner for Tax and Customs to regularise tax offences by paying penalties and outstanding dues, thereby avoiding criminal prosecution for the offences covered by the settlement.

The mechanism also applies to certain “connected breaches” and predicate offences, linked to the tax offence, such as money laundering and fraud.

The bill was introduced and approved over 12 days in August 2025. It was tabled in Parliament on the same day as Bills 143 and 144, two parts of a controversial planning reform package that has since dominated public discourse and sparked protests. 

These are the known cases so far:

Christian Borg:

• A car dealer who was charged in a €1.6 million tax evasion and money laundering case.
• Prime Minister Robert Abela is his former legal advisor and once profited from a 2018 property deal with him.
• The agreement also covers his co-accused, Monique Mizzi and Joseph Camenzuli, a former Labour Party photographer.
• Borg has also been charged with kidnapping in a previous case.

Aron Mifsud Bonnici:

• A lawyer who was charged in a €1.6 million tax evasion and money laundering case.
• Mifsud Bonnici received over €2.4 million in payments into his personal bank accounts between 2016 and 2019. However, during those same four years, Mifsud Bonnici declared a total income of €680,000.
• He is a former advisor to Konrad Mizzi.
• He has been separately charged in connection with the Vitals Hospitals case.

Nigel and Mikaela Scerri

• Accountants behind Ennesse, who were charged with tax evasion and money laundering in connection with €1.5 million in tax and VAT discrepancies.
• €15 million in assets frozen across 15 companies.
• The court found sufficient prima facie evidence for them to stand trial in February 2025.

Potential impact on ongoing cases: The VAT Carousel

• Martin Farrugia and Henriette Cassar have been accused of defrauding the VAT system by approximately €62 million.
• The case involves multiple companies, including NCCF, MAM Construction Ltd, and MWF Construction Ltd.
• The accused have pleaded not guilty, and proceedings are ongoing.
• Amphora Media is informed that authorities are aware of additional businesses linked to the scheme. However, there have been no further prosecutions.

In reply to a series of parliamentary questions by MP Adrian Delia, Finance Minister Clyde Caruana confirmed that the Malta Tax and Customs Administration (MTCA) has received several applications under the new law and is currently processing them.

Caruana did not say whether any fines or sanctions have yet been imposed. He also declined to provide figures on the number of individuals or companies involved, the size of those companies, or the types of businesses concerned, referring the questions to the relevant minister.

Malta already has a significant problem with uncollected taxes. Official figures show that as of 2024, Malta has accumulated over €8 billion in uncollected tax, €6.1 billion in VAT and €2 billion in other taxes.  The government has written off over €6.6 billion of that figure.

Meanwhile, the FATF had expressly noted how Malta’s ability to fight tax evasion was one of the reasons the country was placed on the grey list to begin with – and was one of the three requirements to get off it. 

The pair, who are accountants behind the firm Ennesse,  were arraigned in January 2025 after authorities reportedly discovered a €1.5 million discrepancy in their tax and VAT declarations. 

Around €15 million of their assets – spread across 15 companies – were placed under a freeze order, while a court reportedly declared there was enough prima facie evidence for them to stand trial in February 2025.

Nigel and Mikaela Scerri chose not to comment on the outcome when contacted by Amphora Media.

The Scerris are the latest to make use of a new legal mechanism introduced under Bill 142. These include: Christian Borg, a car dealer with ties to Prime Minister Robert Abela, charged in a  €1.4 million tax evasion and money laundering case; and Aron Mifsud Bonnici, a lawyer and former advisor of Konrad Mizzi, charged in a 1.6 million case and who is separately facing charges in the Vitals Hospitals case.

Under this framework, taxpayers may enter into agreements with the Commissioner for Tax and Customs to regularise tax offences by paying penalties and outstanding dues, thereby avoiding criminal prosecution for the offences covered by the settlement.

The mechanism also applies to certain “connected breaches” and predicate offences, linked to the tax offence, such as money laundering and fraud.

It is being implemented elsewhere. In reply to a series of parliamentary questions by MP Adrian Delia, Finance Minister Clyde Caruana confirmed that the Malta Tax and Customs Administration (MTCA) has received several applications under the new law and is currently processing them. 

The law could also have significant implications for a major tax fraud investigation involving a VAT carousel. 

In 2023, it was reported that Martin Farrugia and Henriette Cassar were accused of defrauding the VAT system, allegedly to the tune of around €62 million.

The investigation, known as Operation Panthera, reportedly covers the period 2012–2019 and encompasses companies linked to the contractor (including NCCF, MAM Construction Ltd, and MWF Construction Ltd), which are said to have under-declared substantial sales and VAT payable.

The pair have pleaded not guilty, and the case is ongoing. Amphora Media has been informed that the police are aware of businesses involved in the scheme, but all have so far evaded prosecution. 

Amphora Media has reached out to the police over the issue.

Lawyers close to the case informed Amphora Media that the settlement agreement was presented to the courts on 27th March, thereby extinguishing the current criminal proceedings against him. 

Mifsud Bonnici was accused of money laundering, tax evasion and making false declarations in documents prepared for the Malta Tax and Customs Administration (MTCA). In July 2025, a court declared that there was enough prima facie evidence for him to stand trial.

More than €1.6 million of Mifsud Bonnici’s assets were frozen in a court order as part of the case on 23rd July 2025.

Mifsud Bonnici is an associate of former minister Konrad Mizzi and is separately facing criminal charges related to the Vitals Hospital case. 

He served as legal advisor in former Prime Minister Joseph Muscat’s government, an advisor in the Ministry for Energy under Konrad Mizzi, which involved discussions on the Montenegro Wind Farm Project, was the board secretary at Enemalta, and was on the Grievances Board at Transport Malta.

According to a Times of Malta investigation, the probe into Mifsud Bonnici began following a series of large transfers worth €1.4 million to XNT Limited, a Malta-based investment firm.

Financial documents seen by Times of Malta indicated that Mifsud Bonnici received payments of over €2.4 million into his personal bank accounts between 2016 and 2019. However, during those same four years, Mifsud Bonnici declared a total income of €680,000.

A separate Times of Malta investigation also revealed how Aron Mifsud Bonnici and Robert Borg raked in over half a million euros in “dividends” and “directors’ fees” from two companies involved in the publicly funded community work scheme.

In the current case, Mifsud Bonnici used a formal mechanism for out-of-court settlements of breaches of Malta’s tax laws and related crimes, introduced by Bill 142.

Under this framework, taxpayers may enter into agreements with the Commissioner for Tax and Customs to regularise tax offences by paying penalties and outstanding dues, thereby avoiding criminal prosecution for the offences covered by the settlement.

The mechanism also applies to certain “connected breaches” and predicate offences, linked to the tax offence, such as money laundering and fraud.

It is being implemented elsewhere. In reply to a series of parliamentary questions by MP Adrian Delia, Finance Minister Clyde Caruana confirmed that the Malta Tax and Customs Administration (MTCA) has received several applications under the new law and is currently processing them. 

The law could also have significant implications for a major tax fraud investigation involving a VAT carousel. 

In 2023, it was reported that Martin Farrugia and Henriette Cassar were accused of defrauding the VAT system, allegedly to the tune of around €62 million.

The investigation, known as Operation Panthera, reportedly covers the period 2012–2019 and encompasses companies linked to the contractor (including NCCF, MAM Construction Ltd, and MWF Construction Ltd), which are said to have under-declared substantial sales and VAT payable.

The pair have pleaded not guilty, and the case is ongoing. Amphora Media has been informed that the police are aware of businesses involved in the scheme, but all have so far evaded prosecution. 

Amphora Media has reached out to the police over the issue.

In December 2025, Farrugia was approved a variation to his freezing order to transfer four leopards and four pumas to the Pafos Zoo in Cyprus.

Another case impacted by the legislation involves Nigel Scerri and his wife, Mikaela, the owners of a tax advisory and accountancy firm. The pair have been charged with money laundering, tax evasion, fraud, and other crimes, and are subject to a €15 million asset freeze.

On 11th August 2025, Malta quietly adopted Bill 142, a piece of legislation that fundamentally rewires how the Maltese State treats tax crime and everything that flows from it.

The law does not decriminalise tax evasion on paper. Instead, it introduces a “special mechanism for out-of-court settlements” that allows tax evaders to resolve fiscal breaches without criminal prosecution.

Crucially, the mechanism does not stop at tax offences. It extends to so-called “connected breaches” – meaning crimes committed alongside tax evasion, including money laundering, fraud and conspiracy.

In practice, this means that individuals accused of multiple financial crimes can resolve all of them through administrative settlement, avoiding criminal prosecution entirely.

“This bill is going to ruin the country,” a tax consultant told Amphora Media. 

The mechanism is already being implemented.  In reply to a series of parliamentary questions by MP Adrian Delia, Finance Minister Clyde Caruana confirmed that the Malta Tax and Customs Administration (MTCA) has received several applications under the new law and is currently processing them. 

Caruana did not say whether any fines or sanctions have yet been imposed. He also declined to provide figures on the number of individuals or companies involved, the size of those companies, or the types of businesses concerned, referring the questions to the relevant minister. 

Malta already has a significant problem with uncollected taxes. Official figures show that as of 2024, Malta has accumulated over €8 billion in uncollected tax, €6.1 billion in VAT and €2 billion in other taxes.  The government has written off over €6.6 billion of that figure.

Meanwhile, the FATF had expressly noted how Malta’s ability to fight tax evasion was one of the reasons the country was placed on the grey list to begin with – and was one of the three requirements to get off it. 

Amphora Media has sent questions to MTCA Commissioner Joseph Caruana for further clarification on the figures.

Under the Bill 142 mechanism, available under certain conditions, taxpayers or companies who reach a settlement with the tax authorities may have their criminal liability for certain tax breaches extinguished after paying outstanding dues and an additional penalty ranging from €10,000 to €1,000,000.  

In return, settlement agreements will constitute an “executive title” allowing direct enforcement, while resolving and terminating related court proceedings. 

Under the settlement mechanism, once the taxpayer pays the agreed amounts, all criminal liability for the covered breaches and related connected breaches is extinguished, and any ongoing prosecutions are effectively terminated.

The changes apply to all forms of tax: Income Tax, VAT, Social Security, and Duties.

The Act also explicitly allows the Commissioner to recognise agreements entered into before the law came into force.

Connected Breaches: The Law Extends Beyond Tax Crime To Other Serious Offences

Crucially, the mechanism covers all breaches of tax laws and all “connected breaches”, that is, any criminal offences committed while breaching tax laws. 

The Act defines “connected breaches” and covers offences committed to facilitate, conceal, or profit from tax crimes, including acts forming part of a pre-concerted plan or involving the use of criminal proceeds. 

For example, a person who commits money laundering and fraud in pursuit of a tax crime can avoid criminal prosecution for all three charges. It would even extend to conspiracy and other serious crimes.

This is despite a national strategy (2021-2023) promising that “The legislative AML/CFT/CPF framework will be constantly updated to ensure adherence with international (FATF and European) standards, as well as other best practices worldwide”.

The law contains a narrow exclusion, providing that “connected breaches” do not include offences listed under Subtitle IV of Title III of the Criminal Code. 

These include offences relating to abuse of public authority, unlawful exaction, extortion and bribery, abuses committed by advocates and legal procurators, malversation by public officers and servants, prison-related abuses, refusal of a lawfully due service, and breaches of duties associated with public office.

Offences typically associated with tax evasion, fraud, and financial misconduct remain eligible for settlement.

Under the new mechanism, limitation periods for both tax offences and connected crimes are suspended while settlement negotiations are ongoing. During this period, no prosecution may be initiated.

Under articles 187A and 187B, the amendments do criminalise breaches of government settlement agreements, with potential imprisonment and further fines (limited to €2.5 million and €500,000, respectively).

However, more consequentially, article 187C stipulates that these offences can only be prosecuted following a complaint by the Commissioner.

Bill 142: A major tax reform rushed through parliament in 12 days

In its official “Objects and Reasons”, the government framed Bill 142 as a measure designed to strengthen investigative powers, improve tax recovery, and deter financial crime.

It claimed the new settlement mechanism would impose penalties comparable to those applicable in criminal proceedings, while enhancing the state’s ability to collect outstanding dues.

The law moved through Parliament in 12 days. Its first reading was held on 23 July 2025, and on 4th August, it passed its second reading, committee stage, third reading and final vote in a single day. All 38 government MPs supported the bill, while 28 members voted against it.

Bill 142 was tabled in Parliament on the same day as Bills 143 and 144, two parts of a controversial planning reform package that has since dominated public discourse and sparked protests. While those bills remain at the first reading stage, Bill 142 was approved and assented into law by 11th August.

Bill 142 implications: The lawyer, the VAT carousel, and the tax advisors

The law is already leaving its mark.

In September 2025, lawyer Aron Mifsud Bonnici informed the courts that he would be exploring the legal amendments enacted under Bill 142 in his case, in which he stands accused of money laundering, tax evasion, and making false declarations in documents prepared for the Malta Tax and Customs Administration (MTCA).

More than €1.6 million of Mifsud Bonnici’s assets were frozen in a court order as part of the case on 23rd July 2025.

According to a Times of Malta investigation, the probe into Mifsud Bonnici began following a series of large transfers worth €1.4 million to XNT Limited, a Malta-based investment firm.

Financial documents reviewed by Times of Malta indicated that Mifsud Bonnici received over €2.4 million in payments into his personal bank accounts between 2016 and 2019. However, during those same four years, Mifsud Bonnici declared a total income of €680,000.

Mifsud Bonnici is an associate of former minister Konrad Mizzi and is separately facing criminal charges related to the Vitals Hospital case. 

He served as a legal advisor in former Prime Minister Joseph Muscat’s government; as an advisor in the Ministry for Energy under Konrad Mizzi, where he participated in discussions on the Montenegro Wind Farm Project; as the board secretary at Enemalta; and as a member of the Grievances Board at Transport Malta.

A separate Times of Malta investigation also revealed how Aron Mifsud Bonnici and Robert Borg raked in over half a million euros in “dividends” and “directors’ fees” from two companies involved in the publicly funded community work scheme.

The law could also have significant implications for a major tax fraud investigation involving a VAT carousel. 

In 2023, it was reported that Martin Farrugia and Henriette Cassar were accused of defrauding the VAT system, allegedly to the tune of around €62 million.

The investigation, known as Operation Panthera, reportedly covers the period 2012–2019 and encompasses companies linked to the contractor (including NCCF, MAM Construction Ltd, and MWF Construction Ltd), which are said to have under-declared substantial sales and VAT payable.

The pair have pleaded not guilty, and the case is ongoing. Amphora Media has been informed that the police are aware of businesses involved in the scheme, but all have so far evaded prosecution. 

In December 2025, Farrugia was approved a variation to his freezing order to transfer four leopards and four pumas to the Pafos Zoo in Cyprus.

Amphora Media has reached out to the police over the issue, but they have not responded.

Another case impacted by the legislation involves Nigel Scerri and his wife, Mikaela, the owners of a tax advisory and accountancy firm. The pair have been charged with money laundering, tax evasion, fraud, and other crimes, and are subject to a €15 million asset freeze.

Malta’s High-Risk Industries

A 2023 National Risk Assessment (NRA) on money laundering, referenced in the Parliament in February 2026, revealed that several key sectors remain vulnerable to financial crime despite enhanced regulatory controls.

It evaluated industries in the Financial Sector, Designated Non-Financial Businesses and Professions (DNFBPs), and Virtual Financial Asset Service Providers (VFASPs) based on three factors: 

• Inherent risk: how vulnerable the sector is by nature,
• Effectiveness of mitigating measures: how strong the controls and supervision are,
• Residual risk level: the remaining risk after controls are applied.

Most sectors fell within the medium-to-medium-high residual risk range. Strong controls (rated “High” or “Substantial”) reduce risk in many areas. However, in several industries, the risk level means they still require close monitoring, and some sectors remain vulnerable to money laundering and financial abuse.

Financial Institutions, Recognition Notice Framework, Corporate Service Providers (CSPs), Real Estate (Immovable Property), High-Value Goods Dealers, and Tax Advisors also fell under the medium-high risk residual risk category.

The Finance Ministry, MTCA, the Attorney General’s Office, Aron Mifsud Bonnici, Martin Farrugia, and Henriette Cassar did not respond for request for comment.

Documents show a private intelligence firm sought details on the “business, political and personal” vulnerabilities of government officials directing proceedings against the concession provider.

A private intelligence firm hired by Steward Healthcare sought to identify the “pressure points” and “vulnerabilities” of individuals within the Maltese government directing proceedings against the hospital concession provider, both in official and unofficial capacities.

Documents seen by Amphora Media and the Times of Malta reveal that CT Group, a UK-based private intelligence firm, asked Steward to map out individuals, their political priorities, and their vulnerabilities “in business, political and personal terms” that they could “target”.

CT Group also requested information on the relationships between these officials and former Prime Minister Joseph Muscat, who has been charged over his role in the hospital concession deal, and whether those ties could “influence” their behaviour.

The firm sought detailed profiles of the parties involved, including their preferred outcomes and, crucially, what Steward could “offer” that would be “acceptable” to resolve the dispute.

It also asked Steward to outline weaknesses in the government’s position on the concession.

In a reply to questions sent, CT said its “position is clearly set out in our previous emails to Times of Malta, OCCRP, and Boston Globe, dated 14, 17, 21, and 28 June 2024, in response to assertions made and questions asked by them at that time.”

“We have nothing to add to what we said in those emails,” it said.

Joseph Muscat said he “would be more than open to give comments”, but due to a court order, he “is prevented from making any comment on issues relating to the Hospital’s concession.”

A previous investigation by OCCRP, the Boston Globe and the Times of Malta , supported by the Daphne Caruana Galizia Foundation, revealed that Steward paid over €6.5 million to private intelligence firms CT Group and Audere to conduct surveillance and disinformation operations against its critics.

The costs of this intelligence work were paid by Steward’s Malta subsidiary, which was largely funded by Maltese taxpayers.

It was coordinated by senior Steward executives who corresponded regularly with private spies, according to emails, encrypted messages, and financial records.

Steward executives prioritised paying these intelligence firms, which sometimes charged the company as much as $170,000 per month, even as bills for critical medical services in its U.S. hospitals went unpaid.

The investigation revealed how Steward corresponded with the intelligence firms about “false flag” operations against a critic who ran a financial research company that issued a negative report about Steward.

That critic was later spied on in his home and followed, according to surveillance reports in the possession of Audere obtained by OCCRP.

Audere also collected embarrassing personal information and photographs of a former Steward employee after Steward feared he would leak financial information to its auditor.

Steward had also engaged CT Group, to target then-Health Minister & Deputy Prime Minister Chris Fearne as their main “opponent” of its concession. It created a report alleging the minister had taken a large bribe, which was then circulated to journalists.

Fearne, who has himself been charged over the hospitals’ scandal, demanded a police investigation into the smear campaign.

Dallas-headquartered Steward Health Care was awarded a €2.1-billion Maltese government contract in 2018 to renovate and manage three public hospitals.

Although Fearne initially backed Steward taking over the contract from Vitals Global Healthcare in February 2018, the relationship appears to have soured thereafter. 

By 2021, senior Steward staff contemplated suing Fearne and Malta’s government in the US, where they planned to allege extortion and solicitation of bribes, a leaked email shows. 

No lawsuit followed, however, former Steward Malta director Armin Ernst appeared to have kept tabs on Fearne, and operations codenamed ‘Project Albacore’ and ‘Project Bluefin’ were launched, e-mails and documents show. 

In a December 2021 e-mail, Ernst flagged a media report claiming irregularities linked to the Foundation for Medical Services, which fell under Fearne and the Foundation’s former CEO, Carmen Ciantar’s remit. 

That same month, Steward directed its law firm, Quinn Emanuel, to hire CT Group, an intelligence firm whose staff includes the UK government’s former counter-terrorism chief. 

In July 2022, CT Group pledged to “deploy into the public domain information about the main opponent of the Client’s concession in Malta” in a commercial proposal obtained by OCCRP. The aim was to identify “improper” behaviour and leak it anonymously to Maltese media.

A Maltese court annulled Steward’s hospital concession in 2023, citing an audit that found “collusion between Steward and senior government officials or its agencies” and called the deal “fraudulent.

The inquiry led to corruption and money-laundering charges against Malta’s former Prime Minister, Joseph Muscat, who was arraigned in court in May alongside more than two dozen others, including Fearne, connected to the hospital deal. All have pleaded not guilty.

It took over the contract from Vitals Global Healthcare, which signed its 30-year concession in September 2015.

However,  journalist Daphne Caruana Galizia revealed months earlier that the government had already struck a deal with Oxley Capital Group, a Singaporean private investment firm, for the refurbishment of the Gozo and St Luke’s hospitals.

After acquiring an unredacted version of the contract, Times of Malta revealed that the government and VGH had signed a memorandum of understanding by February 2015, two months before the request for proposal was issued.

If you have any information you would like to share, please feel free to reach out to julian@amphora.media or contact us on Whatsapp

By Joanna Demarco

Updated with a comment from Komunità Malta agency.

Alexander Kuksov, a Maltese passport holder and the brother of Semen Kuksov, is wanted by the United Kingdom’s National Crime Agency. He is suspected of ‘proceeds of crime offences’ in relation to an operation investigating a Russian ‘billion-dollar money laundering network’.

Britain’s National Crime Agency (NCA) this month announced charges against Alexander Kuksov, 23, putting him on its “most wanted” list. The NCA alleged he was “involved with an organised crime group responsible for the transfer and movement of multi-millions of pounds of criminal cash”. The details have been revealed in a joint investigation between Amphora Media, OCCRP, and Times of Malta.

The agency lists the offences as including “entering into or being concerned in the acquisition, retention, use or control or criminal property [sic], in this case, cash.”

Amphora Media, OCCRP and Times of Malta previously revealed that Alexander Kuksov’s brother, Semen, was stripped of his Maltese citizenship in October last year, following his five-year sentence. Semen, 25, was convicted in the U.K. of involvement in a group the NCA called a “professional banking service for criminals across the world.” 

The brothers, together with their father Vladimir Anatolyevich Kuksov, appear on a list of people granted citizenship in 2022 by Malta. The Kuksovs appear to have been given Maltese citizenship just weeks before Russians were excluded from passport sales to wealthy investors in the wake of the Kremlin’s February 2022 invasion of Ukraine.

In July 2022 – about six months after receiving his Maltese citizenship – Semen began managing “couriers to collect criminal money and deliver the laundered money overseas,” according to a statement by the UK’s Crown Prosecution Service.

The NCA now alleges that Alexander Kusksov was also involved in the criminal money laundering operation.

Lawyers for the elder Kuksov told OCCRP in 2024 that he had “no comment to make but notes that he and his adult son have lived separate lives for some years.” 

Vladimir Kuksov did not respond to a request for comment about the new allegations against his younger son, Alexander, whose whereabouts are unknown.

The Kuksovs received Maltese passports through a controversial citizenship-by-investment program. The so-called “golden passport” scheme was eliminated this year, following a damning judgement by the Court of Justice of the European Union. 

The Komunità Malta Agency, which oversaw the citizenship-by-investment programme, responded by saying, “We can confirm that the name of the person in question has come to the attention of the national authorities, and we shall be following any developments in this case closely.”

Under Maltese law, passports can be revoked if an applicant is sentenced within seven years of becoming a citizen to a jail term of a year or longer.

The charges announced by the NCA against Alexander have not been tried in court, and the money laundering allegations against him are not proven.

When the NCA announced its “Operation Destabilise” investigation in December 2024, it said the money laundering bust was its biggest in a decade, OCCRP reported at the time. The agency said the ring run out of Moscow and Dubai had been moving billions in cryptocurrency and hard cash for criminal operations, ranging from Russian ransomware attacks to street-level drug deals in the U.K.

Several alleged members of the network were sanctioned, and the NCA said it had arrested 84 people. They included Semen Kuksov, who later pleaded guilty to laundering more than $15 million of “criminally obtained cash,” according to the UK prosecution service.

The operation uncovered a complex scheme in which the networks collect funds in one country and make the equivalent value available in another, often by swapping cryptocurrency for cash. The crime agency stated that the investigation exposed and disrupted Russian money laundering networks that support crime worldwide.

The Malta Police Force did not respond to a request for comment on the U.K. case against Alexander or whether it was investigating the allegations against him.

Previous reporting by Amphora Media had also highlighted the lag between the government initiating the passport revocation process and the citizenship being officially revoked.

Malta eliminated its citizenship-by-investment programme earlier this year following a damning judgement by the Court of Justice of the European Union, bringing anend to a long-winded saga.

Malta had tried to defend the scheme, claiming that it is being unfairly targeted despite similar schemes existing in other countries – a false claim. It has now expanded a discretionary citizenship scheme for individuals of ‘exceptional merit.