Banking Regulation 2025

Last Updated November 01, 2024

Senegal

Law and Practice

Author



SCP Houda & Associés is a multi-sectoral and multidisciplinary law firm based in Senegal and Côte d’Ivoire. The firm has a total staff of 63 employees, composed of lawyers, jurists and paralegals. The team works in French and English, to ensure the satisfaction of local and international clients. SCP Houda & Associés provides legal advice and assistance to a variety of clients in many different practice areas, including business law, insurance law, banking and finance, public and private international law, contract law, mining, oil and gas, renewable energy law and tax. The firm has proven expertise in the energy and extractive sector, PPPs, banking and finance, and corporate and commercial law.

The principal laws and regulations governing the banking sector are:

  • the Framework law on banking regulation (BCEAO) (Loi cadre portant réglementation bancaire (BCEAO));
  • Law 2008-26 of 28 July 2008 on banking regulation (Loi 2008-26 du 28 juillet 2008 portant réglementation bancaire, hereinafter the “Law of 2008”); and
  • the Collective Agreement on Banks and Financial Institutions in Senegal (Convention collective des banques et établissements financiers au Sénégal).

The regulator responsible for supervising banks in Senegal is the Banque Centrale des Etats d’Afrique de l’Ouest (the Main Agency of the Central Bank of West African States) (hereinafter the “Central Bank” or the BCEAO).

All these texts are currently being revised to produce a new banking law for the West African Monetary Union (WAMU).

The Authorisation Requirement and the Process for Applying for Authorisation

In Senegal, the banking authorisation regime is regulated by the Law of 2008.

According to this Law, credit institutions can apply for a bank licence or a financial institution licence, which differ slightly in the activities they allow institutions to carry out. Financial institutions are categorised in five different categories, namely:

  • Category 1: financial lending institutions;
  • Category 2: financial institutions for leasing or rental with call option;
  • Category 3: financial factoring institutions;
  • Category 4: financial institutions providing guarantees; and
  • Category 5: financial payment institutions.

In general, banks may carry out the classic banking operations, namely the receipt of funds from the public, credit operations, the provision to customers and the management of payment methods. Financial institutions are allowed to carry out only the activities for which they are classified and may not carry out activities from another category without a preliminary approval (Article 17, Law of 2008).

In addition, credit institutions are authorised to carry out the following activities and services:

  • transactions in gold and precious metals;
  • manual or scriptural exchange operations;
  • investment transactions;
  • advisory and assistance transactions in financial management, asset management, management and investment of securities and financial products, financial engineering transactions, simple leasing of movable or immovable property by financial institutions; and
  • intermediary operations as commission agents and brokers (Article 9, Law of 2008).

Regarding the approval process, applications for authorisation are submitted to the Minister of Finance and the Central Bank, which examine them with regard to the conditions and obligations provided for by the Law of 2008 (Article 15). The Central Bank examines, in particular, the firm’s programme of activities, the financial and technical resources, the plan of development of the network of branches, agencies and counters, as well as the firm’s capacity to realise its development goals. The Central Bank also receives all the information on the status of the persons who have provided the capital, as well as on the fitness and experience of the persons responsible for managing and directing the firm.

The approval is issued by order of the Minister of Finance, after approval by the Banking Commission of the WAMU. If, after a period of six months from the application to the Central Bank, it has not taken a position on the request, the approval is deemed to have been refused (Article 16, Law of 2008). If given, the approval is registered on the list of banks and financial institutions, which was established and is updated by the Banking Commission and published in the Journal Officiel de la République du Sénégal.

Activities and Services Covered, and Restrictions on Licensed Banks’ Activities

Credit institutions are authorised to carry out banking transactions on a regular basis, ie, receive funds from the public, carry out credit transactions, and provide and manage means of payment for customers.

Alongside the general restriction on banking approval, in order for a credit institution authorised in a WAMU member state to open branches or subsidiaries in other member states, it must comply with certain restrictions. Prior to any opening, the institution must notify its intention by means of a declaration addressed to the Banking Commission and deposited with the Central Bank. This declaration is then sent for information to the finance ministers of the home and host countries. (Article 18 of the Law of 2008).

The Central Bank determines the information to be included in the declaration, in particular a detailed presentation of the proposed establishment, which must include information on the planned activities, management, organisational structure, internal control and, if necessary, the constitution of the minimum capital required before commencing activities.

Credit institutions are obliged to comply with a ratio between the various components of their resources and uses of funds, or comply with ceilings or minimums for the amount of certain of their uses of funds, including the conditions under which credit institutions may acquire holdings.

Credit institutions must also comply with management standards in order to guarantee their liquidity, solvency, risk spreading and the balance of their financial structure.

Credit institutions are required to comply with the decisions taken by the WAMU Council of Ministers, the Central Bank and the Banking Commission in the exercise of the powers conferred on them by the Treaty of the West African Monetary Union, the Articles of Association of the Central Bank, the Convention governing the Banking Commission and the Law of 2008.

Subject to individual and temporary derogations granted by the Minister of Finance, banks are prohibited from acquiring their own shares or granting loans against the pledging of their own shares. Banks are prohibited from granting loans directly or indirectly to persons participating in their management, administration, management, control or operation, for an overall amount exceeding a percentage of their effective own funds, to be determined by an instruction of the Central Bank. This prohibition applies to shareholders or partners who each directly or indirectly hold 10% or more of the voting rights in the bank. The same prohibition applies to loans granted to private companies in which the persons referred to above exercise management, administrative or executive functions or hold more than 25% of the share capital.

Common Ancillary Activities of Banks and Additional Authorisation/Requirements (MiFID II, MiCAR)

As stated above, banks may carry out the classic banking operations, namely the receipt of funds from the public, credit operations, the provision to customers and the management of payment methods. Regarding financial institutions, they are allowed to carry out only the activities for which they are classified and may not carry out activities from another category without a preliminary approval (Article 17, Law of 2008).

In addition, credit institutions are authorised to carry out the following activities and services:

  • transactions in gold and precious metals;
  • manual or scriptural exchange operations;
  • investment transactions;
  • advisory and assistance transactions in financial management, asset management, management and investment of securities and financial products, financial engineering transactions, simple leasing of movable or immovable property by financial institutions; and
  • intermediary operations as commission agents and brokers (Article 9, Law of 2008).

On the regional financial market, discretionary management activities, in particular private management and collective management carried out by credit institutions, are subject to special authorisation issued by the West African Economic and Monetary Union (WAEMU) Financial Markets Authority (AMF-UEMOA).

WAMU banks are also authorised to operate as account keepers and securities clearing houses (teneur de compte et de compensateur) on behalf of their customers. These activities are subject to authorisation and supervision by the AMF-UEMOA.

However, cryptocurrency activities are not yet explicitly authorised in Senegal, and banks are not authorised to carry them out. Nor is there currently any legislation governing cryptocurrency activities in Senegal.

Obtaining a European Passport (Branches, Cross-Border Services)

The Law of 2008 does not mention obtaining a European passport to provide cross-border services, to open branches or generally exercise banking activities in Senegal.

When a foreign entity wishes to carry out banking or auxiliary activities, particularly on the regional financial market, it must obtain authorisation to do so.

However, no person may direct, administer or manage a credit institution or one of its branches if they do not have Senegalese nationality or that of a WAMU member state, unless they enjoy assimilation to Senegalese nationals by virtue of an establishment agreement. The Minister of Finance may grant individual exemptions, with the approval of the Banking Commission. Executives for whom a waiver is sought must hold at least a Master’s degree or an equivalent diploma and have at least five years’ professional experience in banking, finance or any other area of expertise deemed compatible with the duties envisaged. Any manager or director who has obtained a waiver of the nationality requirement to work in a credit institution in a WAMU member state is not required to apply for a new waiver when changing position, institution or country.

The Nature of Regulatory Filings and Ongoing Requirements

During the life of a bank, operations that have a significant impact on its shareholder structure are governed by Articles 39 to 41 of the Law of 2008.

To this end, merger operations by absorption or creation of a new company or demerger are subject to prior authorisation by the Minister of Finance, after approval by the Banking Commission. Moreover, under Article 39, any acquisition or transfer of a holding that would have the effect of raising the holding of any one person (directly or through an intermediary) or of any group of persons acting in concert, first above the blocking minority, then above the majority of voting rights in the credit institution, is subject to the same obligation of prior authorisation by the Minister of Finance; also, any acquisition or transfer of a holding that would have the effect of lowering the holding below those thresholds is subject to the same requirement.

In addition, banks and financial institutions with their registered office abroad are required to notify the Banking Commission of any operation referred to above that concerns them.

Pursuant to Article 2 of Instruction No 19-12-2011 of 27 December 2011 establishing the list of Documents and Information Constituting the Prior Authorisation File for the Modification of the Shareholding Structure of Credit Institutions (the “Instruction”), the prior authorisation file must be submitted in four copies to central bank of the member state in which the credit institution is located, following the format provided for in Annex 2 of the Instruction, and it must include a written request addressed to the Minister of Finance of the Republic of Senegal, as well as the documents and information listed in Annex 1 of the Instruction.

The application for prior authorisation, which is processed in the same way as for authorisation, is addressed to the Minister of Finance and filed with the National Directorate of the BCEAO. Authorisation from the Minister of Finance, after receiving the assent of the Banking Commission, is required before the planned operation is carried out.

The Nature of the Ongoing Requirements Towards the Supervisor

The nature of the ongoing requirements towards the supervisor refers to the ongoing obligations that a financial institution must meet vis-à-vis the supervisory authority, in this case the Central Bank or the Banking Commission, as part of its operations. These requirements are in place to guarantee the stability, transparency and compliance of financial activities with the regulations in force.

Credit institutions are required to submit regular financial and operational reports to enable the supervisor to monitor their financial health.

They must also comply with the laws and regulations in force, including rules on governance, risk management and customer protection.

In addition, banks must maintain sound internal control systems to prevent the risk of failure and protect depositors and the financial system in general.

Lastly, the supervisory authorities may carry out audits or inspections to verify the institution’s compliance with regulatory requirements.

Under Senegalese legislation, corporate governance requirements are also regulated by the Law of 2008.

The following conditions apply to banks.

  • Banks may be incorporated in two legal forms, namely as:
    1. public limited companies with fixed capital (société anonyme); or
    2. co-operative or mutual companies with variable capital after special authorisation by the Minister of Finance.
  • They cannot take the form of a one-person company.
  • Exceptionally, they may take the form of other legal entities.
  • They must have their registered office in the territory of one of the member states of the West African Economic and Monetary Union (WAEMU).

The following conditions apply to financial institutions.

  • Financial institutions may be incorporated as:
    1. public limited companies with fixed capital;
    2. limited liability companies (société anonyme); or
    3. co-operative or mutual companies with variable capital.
  • They cannot take the form of a one-person company.
  • They must have their registered office in the territory of one of the member states of the WAEMU.

Under Senegalese law, credit institutions are required to establish a corporate governance mechanism in line with good practice and adapted to their size, their structure, and the nature and complexity of their activities (Article 4 of Circular No 01-2017/CB/C of 27 September 2017 relating to the Governance of Credit Institutions and Financial Companies in the WAEMU).

The registration and oversight of directors and senior management is generally regulated by the Law of 2008 and more specifically by Circular No 02-2017/CB/C of 27 September 2017 on the Conditions of Exercise of the Functions of Directors and Officers in Credit Institutions and Financial Companies of the WAEMU.

The provisions of the Law of 2008 regulate the status of directors and require the directors to be of Senegalese nationality or of the nationality of one of the other member states of the WAEMU.

However, the Minister of Finance may, on advice of the Banking Commission, grant individual exemptions to the nationality requirement. In such a case, a director must hold at least a Master’s degree or an equivalent diploma and must have at least five years of professional experience in the banking sector, finance sector or any other field relevant to the functions envisaged (Article 24, Law of 2008).

In order to obtain an individual exemption to the nationality requirement, the credit institution must send to the Minister of Finance a request for approval specifying:

  • the full identity and nationality of the person for whom the exemption is requested;
  • the relevant position;
  • the reason for using a non-WAEMU national to fill the position; and
  • for the profiles of management positions other than chief executive officer and deputy chief executive officer, a formal indication by the credit institution that the proposed employment contract does not raise any objections from the national employment authorities.

The request sent to the National Directorate of the BCEAO must contain the following documents:

  • an extract from the criminal record of the person concerned;
  • a declaration on honour;
  • official documents establishing the identity and nationality of the person concerned;
  • a detailed curriculum vitae indicating the training received and the acquisition of at least five years’ professional experience in the field of banking, finance or any other field of competence deemed compatible with the duties envisaged;
  • the precise addresses of previous employers;
  • copies of the required diplomas;
  • the draft employment contract for executives, except for the chief executive officer and the deputy chief executive officer; and
  • a conflict of interest declaration.

Persons involved in the direction, administration, management, control or operation of credit institutions are bound by professional banking secrecy (Article 30).

The Individuals Subject to the Remuneration Requirements

Under Senegalese law, employees of banks are bound by the provisions of the Senegalese Labour Code and the provisions of the Interprofessional National Collective Agreement, as well as by the specific provisions of the Collective Agreement on Banks and Financial Institutions in Senegal.

In fact, under Senegalese labour law, employees are classified into different categories, which correspond to different remuneration scales. The Collective Agreement on Banks and Financial Institutions provides for specific classifications of bank employees according to the job they hold. As such, bank employees are classified into:

  • workers and employees, further classified into seven different subcategories;
  • agents, classified into four subcategories; and
  • executives, classified into four subcategories.

Relevant Remuneration Principles

Depending on the category into which the bank or financial institution employee is classified, a specific remuneration is provided for by the Ministry of Labour, which sets up the categorical salary scales in the private sector. The basic salaries provided for by the Ministry for the different categories are mandatory and cannot be reduced by the employer.

Diversity Requirements

There is no specific legislation on diversity on bank boards of directors, the role of women in bank management, equity and inclusion, or even on gender, ethnicity and sexuality. However, some banks include provisions in their internal policies to promote or eradicate certain issues that affect diversity within these companies.

The Bankers’ Oath or Equivalent Binding Rules of Conduct for Bank Employees

Articles 26, 27 and 28 of Law of 2008 establish strict prohibitions and rules of conduct for managers and employees of credit institutions, similar to an oath of probity. The purpose of these provisions is to prevent anyone convicted of serious crimes (such as forgery, fraud, corruption or money laundering) from holding a management or executive position in a credit institution.

  • Prohibitions for managers (Article 26): any conviction for serious offences (eg, forgery, breach of trust, corruption) automatically entails:
    1. a ban on directing, administering or managing a credit institution;
    2. a ban on providing or offering financial services to the public; and
    3. a ban on acquiring an interest in the capital of a credit institution.

These prohibitions also apply to foreign convictions and any complicity or attempt to commit similar offences.

  • Penalties for non-compliance (Article 27): anyone who contravenes these prohibitions is liable to one to five years’ imprisonment and a fine of XOF10-25 million.
  • Prohibitions on employment in a bank (Article 28): any person convicted of the stated offences may not be employed in a credit institution. Failure to comply with this prohibition exposes the employee to the penalties set out in Article 27 and the employer to a fine of between XOF25-50 million.

These rules impose irreproachable conduct on bank managers and employees, with the aim of guaranteeing the reliability and integrity of credit institutions.

The legislation in force in Senegal against money laundering is composed of national laws and community and international standards. In this regard, it should be noted that the reference national law in this regard is Law No 2018/03 of 23 February 2018 on the fight against money laundering and terrorist financing, which transposes into domestic law the Uniform Anti-Money Laundering Bill adopted by Decision No 26/CM/WAEMU of 2 July 2015 (the “AML/CFT Law”).

Persons subject to AML/CFT obligations are listed in Articles 5 and 6 of the AML/CFT Law, including financial institutions.

The AML/CFT Law introduced a risk-based approach, requiring financial institutions to have policies of procedures and internal controls to effectively mitigate and manage AML/CFT risks. Articles 23 and 24 of the AML/CFT Law impose several obligations, including:

  • the centralisation and retention of information on the identity of customers, principals, agents and beneficial owners;
  • the monitoring of suspicious transactions;
  • the appointment of internal managers responsible for the application of anti-money laundering programmes;
  • the continuous training of personnel;
  • the implementation of an internal control system for the effective application and effectiveness of the measures adopted to control risks; and
  • the implementation of measures relating to the detection of unusual or suspicious transactions and compliance with the obligation to report suspicions to the National Financial Intelligence Processing Unit.

In addition to the obligations listed above, banks have an obligation of vigilance with respect to their customers. Indeed, the law obliges banks to have up-to-date knowledge of all their customers, including their income and assets, and to monitor their operations. In this respect, Article 18 of the AML/CFT Law provides the following: “Before entering into a business relationship with a customer or assisting them in the preparation or execution of a transaction, the persons mentioned in Articles 5 and 6 of this Law shall identify the customer and, where applicable, the beneficial owner of the business relationship by appropriate means and shall verify these identification elements on presentation of any reliable written document.” Article 19 of the AML/CFT Law provides the following: “Before entering into a business relationship with a customer, the persons referred to in Articles 5 and 6 of this Law shall collect and analyse the items of information, from among those included in the list drawn up for this purpose by the supervisory authority, that are necessary for the knowledge of their customer as well as the purpose and nature of the business relationship, in order to assess the risk of money laundering and terrorist financing.”

In addition, financial institutions, when entering into a business relationship or conducting transactions with or on behalf of foreign politically exposed persons (PEPs), are required to take specific measures to:

  • implement adequate and appropriate risk-based procedures to determine whether the customer or a beneficial owner of the customer is a PEP;
  • obtain authorisation from the appropriate level of management before entering into a business relationship with the customer;
  • take any appropriate risk-based measures to establish the origin of the assets and the source of the funds involved in the business relationship or transaction; and
  • ensure enhanced ongoing monitoring of the business relationship.

Lastly, financial institutions are required to identify and assess the risk of money laundering or terrorist financing, which may result from:

  • the development of new products and business practices, including new distribution methods; and
  • the use of new or emerging technologies, related to new or existing products (Article 37 of the AML/CFT Law).

Failure to comply with these procedures exposes the institution to the administrative, disciplinary and criminal sanctions provided for in Articles 112 et seq of the AML/CFT Law.

The Deposit Guarantee Scheme (DGS) in the WAEMU, including Senegal, is governed by the 2008 Banking Act and by specific WAEMU decisions, in particular Decision No 088-03-2014 of 21 March 2014, the Articles of Association of the Depositors’ Guarantee Fund (FGD), and Decision No 009 of 30 June 2017/CM/UEMOA. These texts define the membership, financing and compensation arrangements for depositors in the event of bank failure.

Creation and Operation of the FGD (Decision No 088-03-2014)

This Decision establishes the FGD, responsible for protecting savers in the event of the failure of a banking institution, thereby strengthening financial stability and confidence in the WAMU banking system.

The FGD’s mission is to compensate depositors while contributing to the stability of the banking sector.

Compulsory Membership and Contributions

All credit institutions authorised in the WAMU are required to join the FGD and to contribute financially to the FGD through periodic contributions, defined according to their size, their risk profile and the rules established by the FGD.

Contribution Rate and Compensation Limit (Decision No 009-2017)

Decision No 009-2017 sets the annual contribution rate for members to feed the FGD, ensuring that the fund has sufficient resources to cover deposits in the event of a banking crisis.

It also defines the compensation ceiling per depositor in the event of default, guaranteeing the protection of deposits up to a certain limit in order to cover mainly small savers.

Depositor Protection and Compensation

In the event of an institution’s failure, the FGD compensates depositors up to the set limit, in accordance with the conditions set out in the regulations. Banks are also required to inform their customers about the cover offered by the FGD.

These FGD requirements aim to protect depositors and ensure the resilience of the WAEMU banking sector. They impose proactive risk management and transparency obligations on institutions, thereby strengthening customer confidence and the overall financial stability of the Union.

Senegal is no exception to other countries with respect to bank secrecy, to which licensed credit institutions in Senegal are bound. Hence, bank secrecy requirements are regulated in Senegal, and the provisions are mainly provided for in the Law of 2008.

As such, the persons in charge of the management, administration, control or operation of credit institutions are bound by bank secrecy. Such persons are, more precisely, prohibited from disclosing any confidential information of which they have knowledge in the course of their activity, in order to conduct directly or indirectly operations for their own account or to benefit others (Article 30, Law of 2008).

That being said, bank secrecy is not enforceable against the Banking Commission, the Central Bank or a judicial authority acting in the context of criminal proceedings (Article 53, Law of 2008).

According to the above-mentioned provisions, a breach of bank secrecy, for banks, shall be sanctioned by a fine of XOF51-150 million and, for financial institutions, by a fine of XOF16-60 million.

A breach of confidential information of which the above-mentioned persons have knowledge in the course of their activity is sanctioned by imprisonment of one month to two years and/or a fine of XOD10-100 million. In the event of a repeated offence, the maximum penalty will be increased to five years’ imprisonment and a fine of XOF300 million.

The prudential system completes the Law of 2008. This prudential system was adopted by the WAEMU Council of Ministers on the proposal of the BCEAO, pursuant to Article 44 of the Banking Law.

In Senegal, in addition to the Law of 2008, Decision No 013-24-06/CM/WAEMU relating to the prudential framework applicable to credit institutions (the “Decision”) is intended to establish a prudential framework in force within the WAEMU and in particular in Senegal.

The preamble to the Decision states that the WAEMU community framework, and in particular the minimum capital requirements according to risks (credit, operational, market), are based on the Basel II and Basel III rules, and the Basel rules have been transposed taking into account the characteristics of the economies and specificities of the WAEMU banking system.

It consists of a series of provisions organised around three themes:

  • the conditions for exercising the profession (minimum capital and its representation, special reserve, accounting regulations);
  • the regulation of specific operations (shareholdings, fixed assets, loans to main shareholders, managers and shareholders, managers and staff); and
  • management standards (coverage of risks by effective equity capital, of medium and long-term assets by stable resources, division of risks, liquidity rules, structure of liquidity rules, portfolio structure).

Among the requirements of the prudential system is the integration of operational risk into the process of supervising credit institutions. In this respect, the Banking Commission has proposed two approaches to the evaluation of operational risks based on weightings applied to an institution’s net banking income. These weights are identical to those defined by the Basel Committee, namely 15% for the basic approach and a level varying between 12% and 18% for the standard approach.

Among other things, it requires institutions wishing to use the standard approach to set up an operational risk management function with strong involvement of the executive body, which defines the roles and responsibilities of each player.

In the area of credit risk, the precise assessment of risk under the standard approach is based primarily on the counterparty weightings set by the French banking commission, which is the ACPR (Autorité de contrôle prudentiel et de résolution). These weightings depend on the ratings established by External Credit Assessment Institutions or rating agencies. In addition, the Annex to the Decision also provides for the reinforcement of the core capital to be mobilised by the banks under Pillar 1 requirements (minimum capital requirements). Banks must hold a level of core capital corresponding to a minimum threshold of 5% of the amount of their exposure to credit, market and operational risks. This ratio is reinforced by the introduction of a conservation buffer established at a maximum level of 2.5% of the bank’s total exposure to risk, following the example of the threshold defined by Basel III.

By the end of2022, WAEMU banks had to meet a minimum common equity tier 1 capital ratio of 7.5% and a minimum total capital ratio of 11.5%, both inclusive of a 2.5% capital conservation buffer.

Regarding the thresholds of banks’ share capital, Decision No 003 of 30/03/2015/CM/WAEMU fixing the minimum share capital of credit institutions of the member states of the WAEMU has set the minimum share capital of credit institutions of the member states of the WAEMU at XOF10 billion for banks and XOF3 billion for financial institutions of a banking nature.

Article 36 of the Law of 2008 stipulates that banks and financial institutions must at all times have equity capital at least equal to the minimum capital determined under Article 34.

The legal and regulatory framework governing the insolvency, recovery and resolution of banks is in general governed by the OHADA Uniform Act on the Organization of Collective Procedures (the “Uniform Act”) and more specifically by the Law of 2008.

The Uniform Act specifically organises three procedures for dealing with companies in difficulty: preventive settlement, judicial recovery and liquidation of assets.

Preventive settlement is a procedure intended to avoid the insolvency or closure of business and to enable the discharge of the company’s liabilities by means of a preventive composition agreement. This procedure is applicable to any person who, whatever the nature of their debts, is in a difficult but not in an irremediably compromised economic and financial situation and thus allows the company to be exempted from the payment of most of its debts in order to prepare a recovery plan for the company.

The procedures of judicial recovery and liquidation of assets presuppose the cessation of payments of the company. There is a cessation of payments when “the debtor is unable to meet its current liabilities with its available assets”. Judicial recovery is a procedure designed to safeguard the company and for it to pay off its liabilities. In order to implement this procedure, the company must be likely to be saved. The liquidation of assets is a procedure whose purpose is to realise the debtor’s assets in order to pay off its liabilities. The purpose of the liquidation of assets is to ensure the best possible payment of the creditors of the company that is to disappear.

The procedures of preventive settlement, judicial recovery and liquidation of assets instituted by the Uniform Act can only be opened against a credit institution after the assent of the Banking Commission (Article 88, Law of 2008).

Regarding the procedure of liquidation of assets, in the event of the opening or pronouncement of liquidation proceedings against a credit institution, the Banking Commission shall take a decision on the withdrawal of authorisation and the winding up of the institution.

As for the FSB Key Attributes of Effective Resolution Regimes, there is no evidence of implementation by the Senegalese government of these attributes.

Under Senegalese law, the above-mentioned procedures concern all creditors, regardless of their particular situation (employees, preferential creditors, unsecured creditors, etc). In this respect, creditors cannot pursue the recovery of their claim against a defaulting debtor by starting an individual procedure. Collective procedures may be imposed on the creditors of a company in difficulty.

In the event of the liquidation of a credit institution, the bank account holders shall be reimbursed immediately after the creditors of legal costs and creditors of super-privileged wages, up to an amount determined by the competent judicial authority on the basis of the available resources (Article 97, Law of 2008). This does not apply to deposits of credit and other financial institutions.

As DORA is not applicable in Senegal, there are no banking regulatory requirements related to this EU Regulation.

In Senegal, there are no specific banking regulatory requirements relating to ESG matters. Although no specific banking regulatory requirements are provided for under Senegalese legislation, credit institutions are encouraged to implement or strengthen their ESG responsibility by implementing the international ESG standards. These ESG standards encourage, among other things, the quality of social dialogue, employment of disabled people, transparency of executive remuneration and the fight against corruption.

Banks and financial institutions may, on a voluntary basis, implement ESG requirements adapted to their specific structure and activities.

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SCP Houda & Associés is a multi-sectoral and multidisciplinary law firm based in Senegal and Côte d’Ivoire. The firm has a total staff of 63 employees, composed of lawyers, jurists and paralegals. The team works in French and English, to ensure the satisfaction of local and international clients. SCP Houda & Associés provides legal advice and assistance to a variety of clients in many different practice areas, including business law, insurance law, banking and finance, public and private international law, contract law, mining, oil and gas, renewable energy law and tax. The firm has proven expertise in the energy and extractive sector, PPPs, banking and finance, and corporate and commercial law.

Overview of the New Legal Provisions Set Out in the Uniform Law on Banking Regulations in the WAMU Area

Introduction

Adoption by the WAMU Council of Ministers of the draft Uniform Law on banking regulation in the WAMU area

Faced with global economic and financial changes, the West African Monetary Union (WAMU) has embarked on an in-depth reform of the regulation of its banking sector. On 16 June 2023, the Council of Ministers of WAMU member countries adopted a new uniform law on banking regulation in WAMU (the “Uniform Law”). Each member country is invited to transpose this Uniform Law by adopting a national law incorporating the text of the Uniform Law.

The Uniform Law adopted by the WAMU Council of Ministers, which was recently unveiled, aims to regulate several aspects relating to financial entities operating on the designated territory, with a view to protecting public savings and guaranteeing the proper functioning of the banking and financial system of the eight WAMU member states. In addition to WAMU, there is also the West African Economic and Monetary Union (WAEMU), a West African organisation created on 10 January 1994 with the mission of achieving the economic integration of member states by strengthening the competitiveness of economic activities within the framework of an open and competitive market and a rationalised and harmonised legal environment.

This Uniform Law is a continuation of the banking reforms initiated in the region, in particular those introduced by Act No 2008-26 of 28 July 2008 on banking regulations in Senegal (the “2008 Banking Law”), which had already marked a first step towards more rigorous supervision of financial institutions. The Uniform Law is intended to replace the Framework law on banking regulation adopted in 2007, with the aim of providing the WAMU with a legal framework adapted to the changes that have taken place in the banking sector over the last two decades. It is therefore a continuation of the previous legislation.

However, this text has not yet been transposed in Senegal. This means that the 2008 Banking Law in force in Senegal, adopted in 2008, continues to apply until the new law is published.

The legal procedures for transposing the Uniform Act into Senegalese law

The transposition of uniform legislation follows a specific procedure.

For information, the Monetary Union of West African States (UMOA) is characterised by the recognition of a single monetary unit, the Franc de laCommunauté Financière Africaine (FCFA), the issue of which is entrusted to the Central Bank of West AFrican States (BCEAO).

WAMU currently comprises Benin, Burkina Faso, Côte d'Ivoire, Guinea Bissau, Mali, Niger, Senegal and Togo.

WAMU has embarked on a policy of standardising national legislation. Articles 17 and 34 of the WAMU Treaty of 20 January 2007 state that the governments of WAMU member states agree to adopt uniform regulations, the provisions of which are drawn up on its initiative or on that of the Central Bank and adopted by the Council of Ministers, with a view to enabling the full application of the principles of monetary union.

The transposition of a uniform law follows three stages, as set out below.

  • The WAMU Council of Ministers adopts a directive in one of the areas provided for in Article 34 of the WAMU Treaty.
  • The WAMU Council of Ministers adopts the draft uniform law incorporating the text of the directive adopted by WAMU. The draft uniform law often sets a deadline for member states to take the necessary steps to incorporate it into their legal systems.
  • The member states must incorporate the draft uniform law thus adopted into their normative orders in accordance with their internal procedures.

This directive was transposed into a draft uniform law adopted by a decision of the WAMU Council of Ministers No 26/CM/WAMU of 2 July 2016. This decision of the Council of Ministers gave the states a period of six months, from the date of its signature, to take the necessary steps to incorporate the draft uniform law into their legal systems.

The methods of transposing the draft uniform law into the respective national laws of the member states, which form part of the process of transposing a directive, have their own specific features. As uniform laws are not listed in the nomenclature of national laws, the member states should not add the adjective “uniform” to the title of the national transposition law. In fact, this text often constitutes an ordinary law, drawn up with a view to incorporating a draft uniform law into the national legal order. It would be sufficient to indicate the legislative basis of the text followed by its number and title.

In the process of incorporating the draft uniform law into national legislation, the member states do not have a great deal of discretion. Indeed, as the draft has been adopted by the WAMU Council of Ministers, member states are obliged to incorporate its provisions into their legal systems, without making any changes or inserting any provisions that might conflict with the Community text.

Moreover, once the draft uniform law has been incorporated into national legislation and comes into force, it is no longer possible for the national legislator to make amendments that would call into question the substance of the text adopted by the WAMU Council of Ministers. However, the adoption of the draft uniform law does not always rule out any room for manoeuvre for states. Article 17 of the WAMU Treaty states that the Council of Ministers shall consent to any derogations deemed necessary to adapt the draft texts it has adopted “to the specific conditions of WAMU member states”.

It should be noted that the new regulations go further by broadening their scope of application, introducing legal possibilities for a credit institution governed by foreign law, for the establishment of an intermediary financial holding company and legal clarifications regarding Islamic banking and factoring.

This article looks at the main legislative innovations proposed and their impact on the future of the banking sector in the WAEMU and Senegal in particular.

Some New Features of the Uniform Law on Banking Regulation in the WAMU

A broader legal scope

The new regulations have a much broader legal scope than the 2008 Banking Law. This extension is clearly visible in Article 2, which states that: “This law applies to banks, financial institutions, payment institutions and electronic money institutions carrying out their activities in the territory of [one of the WAMU states), regardless of their legal status, the location of their registered office or principal place of business in the WAMU and the nationality of the owners of their share capital or their directors”.

Unlike the 2008 Banking Law, which was essentially limited to credit institutions, the new legislation aims to regulate a wider range of financial entities. In addition to banks and credit institutions, the Uniform Law now also covers specialised institutions such as payment institutions and electronic money institutions. The latter are playing a growing role with the rise of digital transactions and dematerialised payment systems in the WAMU zone. This reinforces the objective of financial inclusion in the WAEMU region and in Senegal.

This opening up reflects the evolution of the financial sector, which is undergoing increased diversification in terms of the players involved and the services offered. The Uniform Law takes account of technological innovations and new forms of financial institutions, ensuring that regulation is more inclusive and adapted to the current reality of the market. In addition, the extension of the scope of application to these entities, regardless of their legal status, their location within the WAMU or the nationality of their directors, is intended to strengthen the supervision and transparency of the regional financial sector.

In addition, the entities mentioned in Article 2 of the Uniform Law are designated as authorised institutions, which implies more rigorous supervision of their operations.

This reform reflects a clear desire to modernise the legislative framework in order to better respond to current economic and financial challenges. Whereas the 2008 Banking Law presented a more limited and less structured framework, the new regulations are intended to be more comprehensive, taking account of developments in the sector while strengthening the stability of the financial system within the WAMU.

Legal clarification of Islamic banking and factoring activities

The Uniform Law provides a clearer and better defined legal framework for certain specific financial activities, in particular Islamic banking and factoring, which are expanding within the WAMU.

Islamic banking is defined as an activity consisting of carrying out one or more Islamic banking operations as a regular occupation.

In accordance with Article 66 of the Uniform Law, banks, financial institutions and payment institutions are authorised to carry out Islamic banking activities, either exclusively or through a dedicated window. In addition, Islamic banking activities are carried out in compliance with the conditions and limits defined by the authorisation, as well as the opinions and certificates of compliance issued by the compliance authorities referred to in Articles 69 and 70 of the Uniform Law. However, the BCEAO may also authorise other entities to carry out Islamic banking activities.

Article 67 of the Uniform Law does not fail to specify the use of the term “Islamic” by financial institutions. Exclusively Islamic banks, financial institutions and payment institutions may use this term in their name, advertising or any other activity. On the other hand, institutions that simply have an Islamic window may not use this term in their corporate or commercial name. However, they may use it in their contractual and commercial documents, as well as in materials specific to their Islamic branch.

Islamic banking operations carried out by the aforementioned entities include banking activities, ie, receiving funds from the public, credit operations and the provision to customers or management of means of payment.

The new regulations also cover factoring. Factoring is a transaction whereby a natural or legal person, known as a member, transfers its receivables to a credit institution by means of a written agreement, with the effect of subrogation. In return for remuneration, the credit institution pays the member in advance all or part of the amount of the receivables transferred, bearing or not, depending on the agreement between the parties, the risks of possible insolvency on the receivables transferred. Considered as a credit transaction, factoring is subject to specific legislation.

Unlike the 2008 Banking Law, which did not cover these areas, the advent of this Uniform Law brings clarity to these activities, which require appropriate regulations to guarantee transparency and compliance with prudential standards, while meeting the growing needs of the regional financial and banking market.

The 2008 Banking Law in Senegal lays the foundations for the regulation of the banking and financial sector, particularly with regard to credit institutions and their operation. However, it did not include any specific provisions concerning the opening of representative offices by foreign credit institutions. It focuses mainly on the supervision of branches or subsidiaries of banking institutions authorised within the WAMU.

The Uniform Law introduces the possibility for a foreign credit institution to open a representative office in a WAMU member state. A representative office is an establishment of a foreign company carrying out banking activities and responsible for acting as a link between the company and the banking market of the WAEMU member state in which it is located. This office does not have management autonomy and does not have the right to carry out banking operations directly, but can serve as a relay for establishing commercial relations and preparing investments.

This legislative innovation is reinforced by Article 49 of the Uniform Law, which stipulates that the opening of a representative office by a foreign credit institution within the WAMU must obtain the prior authorisation of the Minister of Finance.

In addition, the possibility of establishing a representative office in a WAMU member state enables foreign banks to better understand the specific features of the local banking market and to establish stronger business relationships, thus facilitating the gradual integration of foreign institutions into the regional economy. In addition, it represents a sign of the opening up of the regulatory framework to the international market, making the WAEMU financial market more attractive to investors and global banking players.

Thus, the introduction of representative offices in WAMU banking regulations reflects a desire to adapt to international dynamics and the growing need to open up the regional financial market. It represents a step towards making the region more attractive to global financial players, while preserving the regulatory and supervisory mechanisms needed to maintain the stability of the banking system.

Legal clarifications on the status of mandated intermediaries

Article 7 of the Uniform Law clearly specifies the status of mandated intermediaries by addressing the categories of mandated intermediaries, their operating conditions and the activities they carry out. It specifies the conditions governing access to the profession of mandated intermediary, the responsibilities of mandating institutions and their obligations. Mandated intermediaries fall into two categories, namely banking agents and payment service agents.

Banking agents are approached by credit institutions with the principal activity of presenting, offering or assisting in the conclusion of all or part of banking transactions or carrying out all preparatory work and advice. They are authorised to carry out intermediary activities covering all banking transactions within the limits of their mandate, on a regular professional basis and without acting as del credere.

Payment service agents, on the other hand, are called upon by payment service providers to promote the services they provide and to canvass customers on their behalf within the limits of their mandate.

Specific rules may be imposed by the BCEAO on each category depending on the nature of their activities and the risks incurred.

It should be noted that the 2008 Banking Law does not deal in detail with mandated intermediaries. It merely allows credit institutions to operate via intermediaries, but does not provide a rigorous framework for supervising the specific obligations of banking or payment service agents.

This new legislative framework therefore aims to better regulate these players while ensuring that the principal institutions remain responsible for the actions of their intermediaries, thereby strengthening transparency and consumer protection.

The legal possibility of setting up an intermediary financial holding company

Senegal’s 2008 Banking Law, although it laid down the fundamental principles of banking supervision in the country, did not include specific provisions for the creation of intermediate financial holding companies. The banking activities of financial groups were governed by the general rules applicable to credit institutions, limited to compliance obligations and supervision focused on each individual banking entity. Banking holding companies and other intermediary structures designed to group together the financial holdings of groups did not benefit from any particular legal framework or specific supervisory rules, which limited the ability of the authorities to carry out consolidated and co-ordinated risk supervision.

On the other hand, the Uniform Law includes provisions allowing banking groups to set up intermediary financial holding companies in the WAMU area. These entities are subject to prior authorisation by the Banking Commission and must comply with strict prudential rules and reporting obligations specified by the BCEAO or the WAMU Banking Commission.

The creation of these intermediate financial holding companies is not automatic, however, as it is subject to prior authorisation by the WAMU Banking Commission. The purpose of this requirement is to ensure that these entities comply with the prudential standards in force and to assess their potential impact on the stability of the regional banking system.

In addition, intermediate financial holding companies are subject to specific reporting obligations to be communicated to the BCEAO or the WAMU Banking Commission, in order to ensure comprehensive and integrated supervision.

Thus, by allowing the creation of intermediary financial holding companies, the Uniform Law responds to the need to modernise and adapt the legal framework to current economic and financial realities.

Conclusion

The Uniform Law represents a significant step forward in the modernisation of the regional legislative framework, responding to the challenges posed by the economic and financial transformations underway. By broadening the scope of the law, the text proposes major reforms to strengthen the supervision of financial players and adapt to changes in the sector. The new legislation is characterised by a more global approach, integrating payment and electronic money institutions, as well as new financial practices such as Islamic banking and factoring.

The new provisions allowing foreign credit institutions to open representative offices and banking groups to set up intermediary financial holding companies demonstrate the WAMU’s commitment to opening up further to international investors. While encouraging the entry of new players, the Uniform Law imposes strict authorisation conditions and strengthened prudential obligations, thereby guaranteeing a balance between market attractiveness and the stability of the banking system.

The stricter supervision of authorised intermediaries also reflects the importance attached to transparency and rigorous oversight of market participants. Overall, this ambitious reform is in line with international standards, while taking account of the specific characteristics of the WAMU region. It represents a crucial step towards greater economic and financial integration, creating a more solid and favourable regulatory environment for financial institutions, investors and users of the regional banking sector.

SCP Houda & Associés

66, boulevard de la République
Immeuble Seydou Nourou Tall
BP 11417 Dakar
Senegal

+221 33 821 47 22

+221 33 821 45 43

f.allessie@avocatshouda.com www.avocatshouda.com
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SCP Houda & Associés is a multi-sectoral and multidisciplinary law firm based in Senegal and Côte d’Ivoire. The firm has a total staff of 63 employees, composed of lawyers, jurists and paralegals. The team works in French and English, to ensure the satisfaction of local and international clients. SCP Houda & Associés provides legal advice and assistance to a variety of clients in many different practice areas, including business law, insurance law, banking and finance, public and private international law, contract law, mining, oil and gas, renewable energy law and tax. The firm has proven expertise in the energy and extractive sector, PPPs, banking and finance, and corporate and commercial law.

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SCP Houda & Associés is a multi-sectoral and multidisciplinary law firm based in Senegal and Côte d’Ivoire. The firm has a total staff of 63 employees, composed of lawyers, jurists and paralegals. The team works in French and English, to ensure the satisfaction of local and international clients. SCP Houda & Associés provides legal advice and assistance to a variety of clients in many different practice areas, including business law, insurance law, banking and finance, public and private international law, contract law, mining, oil and gas, renewable energy law and tax. The firm has proven expertise in the energy and extractive sector, PPPs, banking and finance, and corporate and commercial law.

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