The Banking Regulation Review: Belgium


The most noteworthy event in the Belgian banking sector in 2021 was the implementation into Belgian law of the new CRD V/CRR II2 package, whose main purpose is to complete the EU banking union and to finalise the implementation of the Basel III framework. The new provisions have been implemented in the Banking Act.3

The Banking Act aims to integrate into Belgian law the three pillars of the EU Banking Union: the Single Supervisory Mechanism (SSM), the Single Resolution Mechanism and the common deposit guarantee schemes.

To this end, the Banking Act transposes into Belgian law several EU directives and regulations (as amended from time to time), including the Capital Requirements Directive of 26 June 2013 (CRD IV),4 the Financial Conglomerates Directive of 16 December 2002,5 the Bank Recovery and Resolution Directive of 15 May 2014 (BRRD),6 the Directive of 16 April 2014 on Deposit Guarantee Schemes7 and specific requirements of the second Markets in Financial Instruments Directive (MiFID II).8

Other relevant events in the area of banking regulation in 2021 included the issuance of several communications and circulars by the National Bank of Belgium (NBB), including three circulars transposing into the Belgian prudential framework the European Banking Authority (EBA) guidelines of 2 July 2021 on the assessment of the suitability of members of the management body and key function holders,9 the EBA guidelines of 2 July 2021 on internal governance under CRD IV10 and the EBA guidelines of 2 July 2021 on sound remuneration policies under CRD IV.11

The regulatory regime applicable to banks

Pursuant to the Banking Act, only the following types of entities may collect deposits of cash or other repayable funds from the public or offer such services to the public in Belgium: Belgian credit institutions (i.e., Belgian entities registered as credit institutions with the NBB), including Belgian subsidiaries of foreign credit institutions; credit institutions established in the European Economic Area (EEA) and holding an EEA passport (i.e., EEA credit institutions operating in Belgium either through a branch or pursuant to the principle of freedom to provide services); and branches of non-EEA credit institutions established in Belgium that are registered with the NBB.

An institution will be deemed to take deposits from the public in Belgium or to offer to do so if, to collect cash deposits or other repayable funds, it engages in any type of marketing activity (newspaper, radio or television advertising, standard documents addressed to potential clients, telephone or internet contact, etc.) targeting more than 50 persons; makes direct or indirect use of one or more intermediaries; or directly solicits or has solicited on its behalf more than 50 persons.

Only the above-mentioned types of institutions can refer to themselves as a credit institution or bank in their corporate name and purpose, their securities and other instruments or documents they issue, and in any marketing materials. Furthermore, these institutions may provide investment services (as defined in MiFID II) in Belgium without having to obtain a separate licence.

With the exception of certain types of loans for which separate registration is required (mainly consumer credit and mortgages), lending is not a regulated activity in Belgium and may, therefore, be conducted without a licence.

Prudential regulation

i Relationship with the prudential regulator

Supervision of the Belgian banking and financial sector is based on the twin peaks model. The NBB is responsible for the prudential supervision of Belgian credit institutions and the Financial Services and Markets Authority (FSMA) is in charge of supervising the financial markets (including listed companies as well as financial products, services and intermediaries), consumer and investor protection and financial information.

As regards the prudential supervision of credit institutions, the Banking Act must be read in conjunction with the SSM Regulation of 15 October 2013,12 which provides for the allocation of supervisory powers between the European Central Bank (ECB) and the NBB. For more information about the applicable rules, see the European Union chapter.

In practice, the ECB is responsible for the prudential supervision of significant credit institutions (i.e., those that meet one of the criteria set out in Article 6 of the SSM Regulation). In addition, the ECB has the power to grant and withdraw the licence of any credit institution, regardless of its size, and to assess the transfer or acquisition of qualifying holdings in a credit institution. In carrying out its supervisory duties, the ECB may apply not only European directives and regulations but also the Belgian legislation applicable to credit institutions, including the Banking Act. In principle, the NBB remains responsible for the supervision of less significant institutions. Practical arrangements for the implementation of SSM cooperation between the ECB and the national authorities (such as the NBB) are specified in the SSM Framework Regulation of 16 April 2104.13

At the macroprudential level, the NBB is, without prejudice to the powers of the ECB, responsible for ensuring the stability of the financial system as a whole. To achieve this objective, the NBB has been entrusted with the following tasks: the detection and monitoring of various factors and developments that may affect the stability and robustness of the financial system (e.g., an accumulation of systemic risks); and the issuance of recommendations on measures to be implemented by the competent national authorities, the ECB or other EU authorities to contribute to the stability of the financial system.

In addition, in carrying out its macroprudential duties, the NBB may use any of the following (non-exhaustive) measures: imposing additional or stricter own funds or liquidity requirements; imposing additional or stricter limits on the total level of activity of institutions as a percentage of their own funds (leverage ratio); or imposing asset valuation rules different from those normally imposed under the applicable accounting rules.

Before adopting any of these measures, the NBB must inform the European Systemic Risk Board, the European Commission and the ECB.

At the microprudential level, the supervisory authority (i.e., the ECB or the NBB, depending on whether the credit institution is considered significant under the SSM Regulation) is responsible for ensuring that credit institutions comply with all provisions of the Banking Act and its implementing decrees and regulations, and the directly applicable EU regulations. To fulfil its role, the supervisory authority may request any information concerning an institution's organisation, functioning, situation or transactions; carry out inspections at the institution's premises (including branches in another EEA Member State, provided the competent authority in the host state is informed beforehand) and make copies of all relevant information; and ask an expert to conduct investigations on its behalf at the institution's expense.

In addition, credit institutions must notify the supervisory authority in advance of any strategic decision they intend to take. The supervisory authority then has two months to object, which it may do if it considers the decision to violate any provision of the Banking Act or to be incompatible with sound and prudent management, or if it feels that the decision could have a significant impact on the stability of the financial system.

The supervisory authority may send a formal notice to a credit institution – whether systemically important or not – asking it to remedy a situation if it considers that the credit institution is not acting in accordance with the provisions of the Banking Act or its implementing decrees and regulations, the Capital Requirements Regulation (CRR),14 the Markets in Financial Instruments Regulation15 or the Commission Delegated Regulation supplementing MiFID II,16 or if it considers that the credit institution could fail to comply with any of these instruments in the next 12 months. The supervisory authority may set a deadline by which the credit institution must remedy the situation.

If the credit institution has not remedied its situation, the supervisory authority may, among others:

  1. impose additional or stricter own funds and liquidity requirements;
  2. require that all or some distributable profits be booked as reserves;
  3. order that variable remuneration be capped at a percentage of the institution's profits; or
  4. require the credit institution to reduce the risks related to certain types of activities or products or to its organisation, if necessary by imposing the sale of all or part of its business.

In addition, the supervisory authority may, at any time, request the credit institution to implement all or part of a recovery plan.

If the institution fails to remedy the situation, the supervisory authority may take any of the following (non-exhaustive) measures:

  1. appoint a special commissioner to approve some or all of the institution's decisions;
  2. require the replacement of some or all of the institution's directors or managers, or appoint interim directors or managers;
  3. suspend or prohibit some or all of the institution's activities for a certain period of time (including the total or partial suspension of existing contracts);
  4. order the disposal of shareholdings held by the institution; or
  5. revoke the institution's licence.

If the supervisory authority takes any of the above-mentioned actions against a credit institution with a branch in another EEA Member State or that provides cross-border banking services in the EEA, it must inform the host country's competent authority of the measures taken, without delay.

If the supervisory authority finds that an EEA credit institution providing banking services in Belgium, either through a branch or on a cross-border basis, does not comply with its obligations in Belgium, it must notify the competent authority in the home country. If the credit institution continues to act in a way that is clearly prejudicial to the interests of Belgian investors or to the proper functioning of the markets, the supervisory authority may take any of the measures listed under points (a), (b) or (c), above, if the institution acts through a Belgian branch, or under (c) if the institution acts on a cross-border basis. With regard to the supervision of Belgian branches of non-EEA credit institutions, the NBB can exercise the same powers and tools as it does for Belgian credit institutions.

If a credit institution has ceased providing banking services for more than six months or has been declared bankrupt, the ECB will revoke the institution's licence.

ii Management of banks

To ensure the efficient and prudent management of their activities, credit institutions must have a solid and adequate business organisation. In particular, they must have:

  1. an appropriate management structure based on a clear and transparent allocation of functions, powers and responsibilities within the institution;
  2. an adequate administrative and accounting organisation, and appropriate internal controls;
  3. efficient procedures for the identification, assessment, management, monitoring and internal reporting of risks to which the institution is likely to be exposed, including the prevention of conflicts of interest; and
  4. adequate independent internal audit, risk management and compliance functions.

Each financial institution must prepare and update a corporate governance memorandum containing information about its internal organisation.

In addition, credit institutions must establish four specialised committees within the board: audit, risk, remuneration and nomination. They are also required to establish a management committee. All members of the management committee must also be members of the institution's board of directors, which is responsible for supervising the management committee's activities, determining the bank's general policy and strategy, and performing all other duties reserved to it by law. In particular, the board plays a key role regarding the implementation and control of the bank's risk appetite, assessment of its internal control mechanisms and verification of compliance by the institution with various regulations.

All members of the management committee and of the board of directors must be natural persons. They are required to devote sufficient time to the exercise of their functions within the credit institution, and the external offices or functions they may hold or perform are subject to limitations. In addition, directors, members of the management committee and heads of independent control functions must be fit and proper to carry out their duties at all times. An NBB circular of 18 September 2018 on the suitability of directors, members of the management committee, heads of independent control functions and senior managers of financial institutions provides additional insight into how the NBB interprets and assesses this requirement. This NBB circular will need to be updated to incorporate the new EBA guidelines of 2 July 2021 on the assessment of the suitability of members of the management body and key function holders.

The NBB has published a manual on the governance of credit institutions, describing the main governance requirements applicable to credit institutions with reference to all relevant policy documents (i.e., the Banking Act and its legislative history, Belgian regulations and circulars, European legislation and international standards). The NBB manual will need to be updated to incorporate the new EBA guidelines of 2 July 2021 on internal governance under CRD IV.

With respect to the remuneration of bank managers and employees, the Banking Act implements the requirements of the CRD IV (as amended by CRD V). As a general rule, credit institutions must have a remuneration policy that is consistent with and promotes sound and effective risk management and does not encourage risk-taking in excess of the level tolerated by the institution. The remuneration policy must also be gender-neutral and in line with the business strategy, objectives, values and long-term interests of the institution. The remuneration policy should apply to all risk-takers (i.e., those whose professional activities have a material impact on the institution's risk profile) (e.g., directors, members of the management committee, heads of independent control functions).

Annex II to the Banking Act provides that the variable remuneration of risk-takers must be capped at 50 per cent of their fixed remuneration when the latter exceeds €100,000. In addition, the Banking Act provides for penalties and clawback mechanisms in the event of considerable losses, non-compliance with the fit and proper standards, or participation in fraud. As regards golden parachutes, any compensation exceeding 12 months' remuneration must in principle be approved by the general meeting of shareholders. Furthermore, golden parachutes must reflect the actual performance of the beneficiary in the long term, and should not be granted in the event of shortcomings or irregular behaviour.

iii Regulatory capital and liquidity

The CRD IV and the CRR, as amended by CRD V/CRR II, which transpose the Basel III standards into EU law, have been implemented into Belgian law by the Banking Act.

As a general rule, a credit institution must have a liquidity and capital requirements policy that is appropriate to its activities. To this end, the board of directors must define a prospective management policy that identifies the current and future liquidity and capital requirements of the institution. The policy must take into account the nature, volume and characteristics of the institution's activities and the associated risks. It should be regularly assessed and updated when necessary. If the supervisory authority learns that an institution's policy is not in line with its risk profile, it may impose additional solvency, liquidity, risk concentration or risk position requirements.

The equity structure of credit institutions is currently divided into Tier 1 (Common Equity Tier 1 and Additional Tier 1) and Tier 2 items. Tier 1 capital is considered to be going concern capital and is intended to allow an institution to conduct its activities and prevent insolvency. Tier 2 capital is considered to be gone concern capital and consists of hybrid instruments, undisclosed reserves and subordinated debt. Its purpose is to absorb losses and repay depositors and creditors if the institution fails.

Credit institutions must also maintain an institution-specific countercyclical capital buffer equivalent to their total risk exposure. The countercyclical capital buffer is defined by the NBB as a macroprudential instrument designed to mitigate cyclical systemic risk and counter procyclicality in lending; its rate is determined by the Royal Decree of 25 November 2015 approving the NBB's regulation of 24 November 2015 determining the rate of the countercyclical Tier 1 capital conservation buffer. On 1 January 2022, the NBB set the countercyclical capital buffer at zero per cent. This decision is reassessed quarterly.

Belgian financial institutions must also comply with a liquidity coverage ratio (LCR), which aims to ensure, on the basis of a stress test, that they have sufficient liquid reserves to cope with outflows for a period of 30 days.

iv Recovery and resolution

The BRRD (as amended by BRRD II) provides common tools for addressing a banking crisis proactively and managing failures of credit institutions in an orderly way. The Banking Act and several royal decrees transpose the provisions of the BRRD into Belgian law.

The Banking Act requires all credit institutions to implement and update a recovery plan. The plan must be analysed and approved by the institution's legal and administrative bodies, and should consider different scenarios (such as a serious financial or macroeconomic crisis) and provide for various measures, other than a state guarantee, to be implemented in the event of significant deterioration of the institution's financial situation. These measures should enable the institution to recover its financial position quickly and without negative effects. The recovery plan must be established within six months of the company being accredited as a credit institution, and must cover the credit institution as well as its Belgian and foreign subsidiaries. Its adequacy will be assessed by the competent supervisory authority, which may take specific measures if it finds that the plan does not meet the applicable statutory requirements (e.g., it may order the credit institution to adjust its risk profile or review its strategy and structure). The NBB issued a communication on 21 March 2018 setting out its expectations for the recovery plans of Belgian credit institutions and their parent undertakings. The communication also provides information on the structure and content of the plan.

The Act of 25 April 2014 on various provisions, which was adopted on the same day as the Banking Act, created a Resolution Authority within the NBB. The Resolution Authority is responsible for preparing the resolution plan provided for by the Banking Act. Rules on the functioning and organisation of the Resolution Authority are set out in the Royal Decree of 22 February 2015.

Pursuant to the Banking Act, the resolution plan defines the measures, other than a state guarantee, that may be implemented by the Resolution Authority in the following circumstances:

  1. failure of the credit institution is confirmed or expected;
  2. when it is unreasonable to believe that prudential action could prevent the failure of the credit institution within a reasonable period of time; and
  3. if a resolution measure is necessary in the public interest to ensure the continuity of the institution's critical functions, avoid disruption of the Belgian and international financial systems, and protect insured deposits.

The resolution plan must cover the credit institution as well as its Belgian and foreign subsidiaries. The following resolution tools are available to the Resolution Authority: the sale of business tool, the bridge institution tool, the asset separation tool and the bail-in tool.

Pursuant to the BRRD, bank failures should, in principle, be resolved through contributions by shareholders and creditors of the failing institution (a bail-in) rather than through public intervention (a bail-out). This measure is intended to minimise the cost of resolution for taxpayers and to incentivise bank shareholders and creditors to monitor the institution's financial situation.

Rules on the transfer and mutualisation of ex ante contributions to be made by credit institutions to the Single Resolution Fund are provided for in a separate intergovernmental agreement entered into between 26 Member States of the Banking Union, including Belgium, on 21 May 2014. The Single Resolution Fund is the resolution financing arrangement for the Single Resolution Mechanism. It can only be used to the extent necessary to ensure effective application of the resolution tools and for specific purposes (e.g., to guarantee the assets or liabilities of, or make loans to, the institution under resolution).

Conduct of business

i Conduct of business rules

There is no consolidated set of conduct of business rules applicable to institutions providing banking services in Belgium. However, applicable rules may be found in various pieces of legislation. Moreover, a number of professional associations have drawn up their own codes of conduct.

The legislation with which Belgian credit institutions, Belgian branches of foreign credit institutions and, in some cases, EEA credit institutions providing banking services in Belgium on a cross-border basis must comply when providing banking services in Belgium includes:

  1. the Act of 21 December 2013 on financing for small and medium-sized enterprises (SMEs), which creates a legal framework for credit facilities granted to SMEs. The purpose of this Act is to ensure easier access to credit for SMEs by imposing specific obligations on both lenders and borrowers (e.g., a duty of care and a duty to inform) and by ensuring greater transparency;
  2. Book VI of the Belgian Code of Economic Law (Market Practices and Consumer Protection), which sets out specific rules applicable to contracts for the provision of financial services entered into with consumers by remote means;
  3. Book VII of the Belgian Code of Economic Law (Payment and Credit Services), which contains specific provisions on payment services, consumer credit and mortgages;
  4. the Act of 22 March 2006 on intermediation in banking and investment services and the distribution of securities, pursuant to which a regulated entity (such as a credit institution) that is considering using an intermediary in Belgium must ensure that the intermediary is registered with the FSMA, and all employees or representatives of a regulated financial entity who come into contact with the public must meet certain professional knowledge requirements;
  5. the Act of 2 August 2002 on the supervision of the financial sector and on financial services, which, inter alia, implements into Belgian law the MiFID II conduct of business rules (know your customer, best execution obligation, management of conflicts of interest, etc.) and its implementing Royal Decree of 19 December 2017;
  6. the Act of 11 July 2018 on public offers of investment instruments and the admission of investment instruments to trading on regulated markets, which generally requires the publication of a prospectus before a public offering of investment instruments and transposes into Belgian law the rules set out in the Shareholder Rights Directive17 on the identification of shareholders of listed companies, the transmission of information between shareholders of a listed company and the company, and facilitation of the exercise of shareholder rights by financial intermediaries;
  7. the Act of 14 December 2005 abolishing bearer securities and prohibiting the issuance or delivery of bearer securities in Belgium; and
  8. the Royal Decree of 25 April 2014, which imposes certain information obligations upon the distribution of financial products to retail clients.

ii Prohibition on proprietary trading

It is in principle prohibited for any credit institution to engage in proprietary trading activities, either directly or via a Belgian or foreign subsidiary. This prohibition covers, inter alia, positions in financial instruments held by the institution with the intent to generate short-term profits (e.g., through speculation on price fluctuations) or high-risk trading strategies that are likely to result in substantial losses. This prohibition is based on the principle that a credit institution may not use its clients' deposits for speculative purposes that make a limited contribution to the real economy.

The prohibition on proprietary trading does not apply to certain trading activities, such as the provision of investment services to clients, market-making activities, hedging, treasury management and long-term investments. However, these authorised activities are capped, and must comply with specific quantitative and qualitative requirements.

An NBB regulation of 1 April 2014, approved by the Royal Decree of 25 April 2014, establishes specific rules on permitted proprietary trading activities and is supplemented by an NBB circular of 30 March 2015 on periodic quantitative and qualitative reporting requirements with respect to proprietary trading. This circular applies to Belgian credit institutions whose deposits or issued debt instruments are covered by the Belgian deposit guarantee scheme, and contains specific instructions and templates for the quarterly quantitative and annual qualitative reporting obligations applicable to such institutions.

iii Bankers' liability

Belgian law does not contain specific rules on the liability of bankers. The liability of a banker is, therefore, determined pursuant to the general liability rules that clearly distinguish between contractual liability (contract claims) and extra-contractual liability (tort claims):

  1. contractual liability: a bank may be held liable for breach of any of the provisions of a contract entered into with a customer. The bank's liability is assessed in light of the nature and scope of its contractual (i.e., professional) obligations. A bank may also be held liable for abuse of right or breach of the duty to perform a contract in good faith; and
  2. extra-contractual liability: a bank may also be held liable for a tortious act that causes damage to a customer or even a third party if there is a causal link between the act and the damage (Article 1382 of the old Civil Code). The act can be a violation of either a specific statutory rule or the banker's general duty of care, which is measured against the behaviour expected of a reasonably prudent professional.

As a general rule, an injured party cannot cite both contractual and extra-contractual liability to claim damages for the same harm or loss; however, as an exception to this rule, an injured party may base a claim on both contractual and extra-contractual liability under the following circumstances: during performance of a contract, the breaching party commits a wrongdoing that constitutes a breach of its general duty of care but not of a contractual obligation, and thereby causes damage that is different from that which would have resulted from improper performance of the contract. In any case, a banker's liability is assessed on a case-by-case basis, taking into account the banker's and the customer's level of expertise, the nature of the transaction, the specific circumstances and so on.

Under certain circumstances, a bank may limit or exclude its liability (both contractual liability and liability in tort) through an ad hoc contractual provision.

Based on the above-mentioned rules, and without prejudice to any conduct of business rules contained in specific legislation, banks have the following main duties to their customers under Belgian law:

  1. compliance with all applicable rules and regulations;
  2. compliance with the duties of skill and care expected of a banker (expertise, foresight, diligence, vigilance, prudence, etc.);
  3. the provision of adequate information to customers about the nature and characteristics of a transaction, having regard to the customer's expertise;
  4. provision of proper advice to customers without interfering with their business;
  5. verification of customers' financial situations, since a banker may be held liable for creating an impression of solvency by extending (or maintaining) credit to a customer that is in financial difficulty; and
  6. prudent action when terminating a contract with a customer. In particular, a bank should only terminate such a contract in accordance with the applicable contractual provisions, and should be careful not to act abusively in doing so.

iv Banking confidentiality

There is no formal bank secrecy in Belgium; however, under Belgian law, a banker has a general duty of confidentiality to the bank's clients. This duty is contractual and customary in nature, and is deemed to be an implied contractual term. Violation of this duty of confidentiality may give rise to breach-of-contract claims.

It is generally accepted, however, that this duty does not prevent a bank from disclosing information about its clients further to an official request by a Belgian court or if the client authorises the bank to do so. The duty of confidentiality is also not applicable, to a certain extent, in dealings with the tax authorities, which may request a bank to disclose any information that could be useful in determining the taxable income of a client of the bank, if the authorities have indications of tax fraud or if the client's taxable income is to be determined on the basis of signs and indications of greater wealth. Belgian credit institutions must also report to the Central Point of Contact, a database managed by the NBB, information on their clients' bank accounts (including, as from January 2022, periodical information on the account balances). The tax authorities may have access to such information under specific conditions (e.g., when there is an indication of tax fraud).


Belgian banks mainly fund their activities through customer deposits, and Belgium is characterised by high savings rates.

In 2022, Febelfin, the representative association of the Belgian financial sector, published a report on the Belgian banking sector in 2020 and 2021. According to Febelfin, total deposits by Belgian customers (i.e., households, companies and public authorities) with credit institutions amounted to €652.9 billion for those years (mainly in the form of savings and current accounts).18 Deposits by Belgian customers with Belgian credit institutions amounted to 135 per cent of GDP, compared with the eurozone average of 123 per cent for the same period.

Other sources of funding include interbank and capital markets transactions, central bank funds and, under certain circumstances, state guarantees.

Control of banks and transfers of banking business

i Control regime

The Acquisitions Directive19 was transposed into Belgian law by the Act of 31 July 2009. The relevant provisions have been implemented in the Banking Act.

If the acquisition or disposal of a shareholding in a Belgian credit institution would result in any of the stated thresholds being crossed, the person, acting alone or in concert, wishing to acquire or dispose of the shareholding, must notify the NBB of its intention to do so. Belgium has not opted to set a notification threshold of one-third rather than the standard 30 per cent. The notification thresholds applicable in Belgium are thus 10 per cent, 20 per cent, 30 per cent and 50 per cent. Upon receipt of a notification, the NBB must inform the ECB, which, under the SSM Regulation, has the power to assess the transfer or acquisition of qualifying holdings in a credit institution. For more information about the applicable rules and procedures, see the European Union chapter.

The following two documents supplement the Banking Act:

  1. an NBB communication of 22 September 2017 to parties that propose acquiring or increasing a qualifying shareholding, containing all information necessary to ensure the smooth functioning of the assessment procedure and the various forms to be used; and
  2. an NBB circular of 22 September 2017 addressed to regulated financial undertakings concerning their obligation to notify the NBB upon learning that a stake in their capital has been or will be acquired, increased, decreased or disposed of, thereby causing the 10 per cent, 20 per cent, 30 per cent or 50 per cent thresholds to be crossed (upwards or downwards); undertakings must also notify the NBB annually of the identity of any parties holding such a qualifying stake in their capital.

ii Transfers of banking business

Pursuant to the Banking Act, any merger between credit institutions or between a credit institution and another financial institution, as well as any transfer between such entities of all or part of their business, must be approved by the competent supervisory authority, which has two months from notification of the proposed transaction to object. It may do so if it considers the decision to violate any provision of the Banking Act or to be incompatible with sound and prudent management, or if it feels that the decision could have a significant impact on the stability of the financial system.

The supervisory authority's authorisation must be published in the Belgian State Gazette. The Banking Act provides that a transfer of all rights and obligations arising from the business of a financial institution involved in a merger or other transaction (e.g., rights and obligations arising from deposits or loan arrangements) is enforceable against third parties as from publication of the supervisory authority's authorisation, without the need to obtain the clients' consent.

The European Commission Proposal of 27 October 2021 for a directive amending CRD IV20 contains new rules on the transfer of banking business. It is currently expected that the proposed amendments will enter into force by 2023 at the earliest.

The year in review

i CRD V/CRR II package

From a regulatory perspective, a key topic in the Belgian banking sector in 2021 was the implementation into Belgian law of the new CRD V/CRR II package. The main purpose of this package is to complete the EU's banking union and to finalise implementation of the Basel III framework. Key measures include the introduction of specific ratios, such as the leverage ratio and net stable funding ratio, new provisions on sustainable finance and the clarification of the types of entities exempt from CRD/CRR requirements. This new package also has a significant impact on the rules on group supervision and provides that, subject to certain exceptions and exemptions, parent financial holding companies must now be approved. In addition, Belgian credit institutions whose parent undertaking is a third-country entity must either be held via an intermediate EEA parent undertaking, themselves be an intermediate EEA parent undertaking, be part of a third-country group that does not have other EEA subsidiaries that are credit institutions, investment firms or approved or designated (mixed) financial holding companies, or be part of a third-country group with total assets in the EEA valued at less than €40 billion.

ii New EBA guidelines

Other key developments included the adoption of three circulars by the NBB, transposing into Belgian law the EBA guidelines of 2 July 2021 on the assessment of the suitability of members of the management body and key function holders, the EBA guidelines of 2 July 2021 on internal governance under CRD IV, and the EBA guidelines of 2 July 2021 on sound remuneration policies under CRD IV. The main purpose of these guidelines is to update previous guidelines published by the EBA on the same topics, taking into account the new provisions of the CRD V/CRR II package. Generally speaking, these new guidelines aim at promoting diversity within credit institutions, enhancing the prevention of money laundering and terrorist financing and integrating environmental, social and governance (ESG) risk factors within the governance arrangements of credit institutions. Belgian credit institutions were expected to comply with these new requirements as from 31 December 2021.

iii Prohibition of special mechanisms

The Act of 2 June 2021 introduced in the Banking Act a specific provision prohibiting Belgian credit institutions to set up special mechanisms with the aim or effect of enabling or facilitating tax fraud by third parties. A 'special mechanism' is a process meeting the following four cumulative conditions:

  1. it has the aim or effect of enabling or facilitating tax fraud by third parties;
  2. it is initiated by the credit institution itself or the credit institution clearly takes an active part in it, or it results from gross negligence on the part of the credit institution;
  3. it involves a pattern of conduct or omission; and
  4. it is of a special nature, in other words the institution knows or should have known that the mechanism deviates from the standards and normal practices for banking operations.

On 6 July 2021, the NBB issued a circular providing further guidance on this prohibition, including a list of practices that are considered as prohibited mechanisms.

Outlook and conclusions

In its 2021 Annual Report, the NBB notes that the Belgian banking sector was able to absorb the financial impact of the coronavirus pandemic and to contribute to the design and implementation of support measures for the Belgian businesses and households concerned. At the beginning of the coronavirus crisis, a number of measures were taken to enable the Belgian financial sector to assist in managing the crisis, including the reduction of some of the capital and liquidity requirements applicable to credit institutions (to enable them to use the capital buffers to cover the losses and continue to finance lending) and other arrangements permitting the postponement of loan repayments and the grant of bank loans backed by the Belgian state.

From a regulatory perspective, a key topic in the Belgian banking sector in 2021 was the implementation into Belgian law of the new CRD V/CRR II package and the upcoming new banking package adopted by the European Commission on 27 October 2021. This new package aims, among other things, at implementing the outstanding elements of the Basel III reform, introducing explicit rules on the management and supervision of ESG risks and increasing harmonisation of certain supervisory powers and tools (e.g., supervisory authorities will be granted additional powers to assess whether transactions are sound and bank managers are fit and proper). On 1 December 2021, the NBB released its annual list of the country's systemically important banks. The eight banks on the list are the same as those indicated in 2020, namely BNP Paribas Fortis, KBC Group, Belfius Bank, ING Belgium, Euroclear, the Bank of New York Mellon, Argenta and Axa Bank Belgium.


1 Anne Fontaine is a partner and Pierre De Pauw is a counsel at NautaDutilh.

2 Directive (EU) 2019/878 and Regulation (EU) 2019/876.

3 Act of 25 April 2014 on the status and supervision of credit institutions.

4 Directive 2013/36/EU.

5 Directive 2002/87/EC.

6 Directive 2014/59/EU.

7 Directive 2014/49/EU.

8 Directive 2014/65/EU.

9 EBA/GL/2021/06.

10 EBA/GL/2021/05.

11 EBA/GL/2021/04.

12 Regulation (EU) No. 1024/2013.

13 Regulation (EU) No. 468/2014.

14 Regulation (EU) No. 575/2013.

15 Regulation (EU) No. 600/2014.

16 Commission Delegated Regulation (EU) 2017/565.

17 Directive 2007/36/EC, as amended by Directive (EU) 2017/828.

18 Febelfin, Facts & Figures 2020–2021, available at

19 Directive 2007/44/EC.

20 COM(2021) 663 final.

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