► Référence complète : O. Dufour, La justice au temps du terrorisme. De Charles à Samuel Paty, préface de Jean Reinhart, postface de François Martineau, LGDJ-Lextenso Paris, 2025, 383 p.

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►Les 7 procès relatés : 

• sept.-déc. 2020 : procès des attentats de janvier 2015 (Charlie Hebdo) : p.15 - 83
•  

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► Full reference : M.-A. Frison-Roche, "Obligation de compliance et gouvernance bancaire (Compliance obligations and banking governance)", in Chair in Business Ethics: Compliance, ESG and Sustainability Reporting & National Association of Bank Lawyers (ANJB), Compliance et vigilance bancaire : la participation des acteurs du secteur bancaire et financier à la LCB/FT (Compliance and Banking Vigilance: the Participation of Banking and Financial Sector Players in AML/CFT) , Faculty of Law, Catholic University of Lille, Lille, 12 March 2026.

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🧮view the full programme for the event (in French)

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📶view the slides (in French)

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► English presentation of this introductory lecture of the symposium : Based on a specific method, three perspectives will be taken.

In method, to shed light on the round tables making up the day's meetings without addressing the subject in their place or pretending to answer in advance the questions they will raise, or seeking to conclude in advance without having listened to anything, which is sometimes the flaw of introductions, which are so often a kind of disguised closing statement, with just a few question marks to give the impression of change, I have adopted the old, old method of the "triple funnel" introduction.

This involves starting from a point other than the subject of the conference itself, Compliance and banking vigilance: the participation of banking and financial sector players in AML/CFT, in order to approach the subject from an external perspective and in a preliminary manner, nbsp;then moving on to a second external point, and doing so a third time, so that after this three-part presentation, the subject has been explored in sufficient depth to allow the following speakers to focus on the specific topic at hand.

This is all the easier given that the chosen theme itself focuses on three points: a specific ambition (the "fight against money laundering and terrorist financing"), a specific sector (the "banking sector") and a specific activity carried out by individuals; three specific terms: one ambition (the "fighting agains AML/CFT""activity"). - one sectors (the "banking sector") and one active department (the "participation of stakeholders").

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My first starting point is to define what Compliance Law is in order to link Compliance Law to the subject it covers: the banking sector. Because if it were simply a matter of "being conform with applicable regulations", it is difficult to understand why the banking sector is so concerned, so constrained, so exposed to "compliance", which is simply the British way of saying "conformity". There must be more to it than simply obeying every rule and standards for preventing breaches for it, to be obliged to be so structuring and for the banking sector to be at the forefront.

It therefore appears that Compliance Law is not simply mechanical obedience to a body of regulations, but rather the contribution made by systemic operators to the realisation of political ambitions that are essential for the future (the "Monumental Goals", both negative and positive). It is in this capacity that the banking sector, because it is composed of "crucial operators", is the natural subject of Compliance Law. Its power should not be criticised; it is indispensable. In an emerging branch of law that is systemic, that is Ex Ante, that is above all a Law of action whose object is the future. Techniques of conformity is only one tool.

⛏️Go further  :

🕴🏻M.-A. Frison-Roche, 📝Compliance Law, 2016

🕴🏻M.-A. Frison-Roche, 📝 Monumental goals, the beating heart of compliance law, in  🕴🏻M.-A. Frison-Roche, 📕The monumental goals of compliance, 2022

🕴🏻M.-A. Frison-Roche, 📝The Birth of a New Branch of Law: Compliance Law, 2024

🕴🏻M.-A. Frison-Roche, 📝Compliance and conformity: distinguishing between them in order to articulate them, 2024

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My second starting point is to start with the "Monumental Goals", this normative foundation of Compliance Law, and link it to this present specific case, privileged ambition of combating money laundering and terrorist financing. Certain things are surprising. Indeed, if we refuse at the introductory stage to delve into the technicalities of the texts and the litigation surrounding them, we may wonder why these two subjects (money laundering and terrorist financing) are linked in this way. We can see the correlation between banking activitird and money laundering. Notaries, auctioneers, and, in short, anyone who handles money are also involved in the fight against it. Moreover, if we see the ratio legis, the idea remains that the one who is merely the conduit (to use the familiar basis distinction in the regulatory rule of essential network infrastructure) could also be the one who organises the content: the image remains of the money laundering banker. Even if the ex ante compliance diligence whitewashes in advance, this suspicion that remains of an ex post sanction. We pay dearly for this representation, which permeates the repressive, even Criminal, Law of banking supervision, particularly in matters of secrecy, transparency, information and risk-taking.

But why extend it to terrorist financing? Because the suspicion of terrorist bankers no longer exists. The case becomes clear-cut again. It is a matter of internalising within banks the sovereign responsibility to intervene before it is too late, before people are killed. Financing is the weak and visible point of systemic evil. This is understandable. It has moved from ex post (financial processing after the crime) to ex ante (financial processing before the crime). It is of a different nature.

But if this is of a different nature, there is no reason to stop this Ex Ante surveillance, because money movements provide so much information about collective and individual projects. For example, in the digital space. We must be careful about this, in light of the principle of freedom, of which the principle of non-interference is only one aspect.

⛏️Go further  :

🕴🏻M.-A. Frison-Roche, 📝The Ex Ante - Ex Post Couple, Justification of a Specific Regulatory Law, in 🕴🏻M. -A. Frison-Roche, 📕Les engagements dans les systèmes de régulation, 2006

🕴🏻M.-A. Frison-Roche, 📝Ex Ante Responsability, a pillar of Compliance Law, 2022

🕴🏻M.-A. Frison-Roche, 📝Compliance, Vigilance and Civil Liability: Understanding and Keeping a Level Head, in  🕴🏻M.-A. Frison-Roche, 📕The obligation of compliance, 2025

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My third starting point is "Governance", a rather mysterious term, as it relates more to the political art of mobilising human beings than to Law. Why is it necessary for "actors" to participate, when legal norms are binding and, in most cases, take the form of Criminal Law? The combination of the most violent norms, the application of financial penalties, and even deprivation of liberty, being often claimed as a victory for financial and banking regulatory and supervisatory bodies , even as procedural principles are being rolled back, could be a source of incomprehension.

Moreover, in a legal system that would be challenged by this "Governance", it is up to the State to dictate and the banks to obey. But if banks take charge of everything, it becomes difficult to maintain this system, and it is undoubtedly no longer tenable if the Monumental Goal expands to dimensions that exceed those of the State but correspond to those of the banks. The risk then is to move from one governing body to another, which is a growing social and political risk.

In practical terms, banking operators can achieve this reversal in two ways. Firstly, by effectively involving the human beings who make up their organisations, both internally and externally, their partners and stakeholders. This can be called "Governance" in an alliance based on explicitcommon  goals, with contributions that are not taken at face value but are provided by "compliance structures", "credible behaviour" and "plausible trajectories".

In this respect, mutual banks are in a better position than others. Training mechanisms, which are central to Compliance Law, play an essential role here. Secondly, alliances with public authorities and regional roots, with concrete assessments, are decisive. The contract then becomes not only the mandatory means by which the regulated bank fulfils its regulatory obligation, but also the most traditional legal tool by which it exercises its freedom to contribute, in its own way, to the achievement of Monumental Goals for the future of the social group, which is currently under threat.

We are far beyond "conformity": this is called Compliance Law.

⛏️Find out more  :

🕴🏻M.-A. Frison-Roche, 📝A substantive Compliance Law, based on the European humanist tradition,in 🕴🏻M. -A. Frison-Roche, 📕Towards a Europe of Compliance, 2019

🕴🏻M.-A. Frison-Roche, 📝Training: content and context of Compliance Law, in 🕴🏻M. -A. Frison-Roche, 📕Compliance tools, 2020

🕴🏻M.-A. Frison-Roche, 📝Compliance Contract, compliance clauses, 2022

🕴🏻M.-A. Frison-Roche, ⚙️Compliance and Contracts, 2026

🕴🏻M.-A. Frison-Roche, 🏛️Assignment given by the Frenc, Minister of Justice, Compliance Law, Work in progress, 2025 - 2026.

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► Référence complète : Règlement (UE) 2024/1624 du Parlement européen et du Conseil du 31 mai 2024 relatif à la prévention de l’utilisation du système financier aux fins du blanchiment de capitaux ou du financement du terrorisme.

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► lire le texte

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► Référence complète : Règlement (UE) 2024/1624 du Parlement européen et du Conseil du 31 mai 2024 instituant l’Autorité de lutte contre le blanchiment de capitaux et le financement du terrorisme et modifiant les règlements (UE) no 1093/2010, (UE) no 1094/2010 et (UE) no 1095/2010.

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► lire le texte

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► Référence complète : Directive (UE) 2024/1640 du Parlement européen et du Conseil du 31 mai 2024, relative aux mécanismes à mettre en place par les États membres pour prévenir l’utilisation du système financier aux fins du blanchiment de capitaux ou du financement du terrorisme, modifiant la directive (UE) 2019/1937, et modifiant et abrogeant la directive (UE) 2015/849.

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► lire le texte

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Full reference: Autorité de Contrôle Prudentiel et de Résolution (French Banking Regulator), Commission des sanctions (Commission of sanctions), 24th of February 2021, ING Bank France, procedure n°2020-02

Read the decision (in French)

In this decision, the ACPR Sanctions Commission condemns IGN Bank France to a reprimand and a financial penalty of 3 million euros because of the inadequacy of its measures to fight corruption, money laundering and financing of terrorism.

Extract from the decision summarizing ING France's breaches of its Compliance obligations to fight against corruption, money laundering and financing of terrorism:

"At the time of the on-site check, ING France's risk classification was incomplete and ineffective (grievance 1) and its system for monitoring its business relations (complaint 2) and their operations (grievance 4) presented serious deficiencies, as well as its organization and procedures for fund transfers (grievance 3). The updating of customer knowledge was insufficient (grievance 5), as were the detection of PEPs and the implementation of measures due diligence for this category of clientele (grievance 6). For the implementation of its due diligence obligations, numerous shortcomings were noted, whether these were breaches of the obligation to carry out a reinforced examination (grievance 7) or breaches of the obligation to send Tracfin a DS, initial (grievance 8) or additional (grievance 9). Finally, the detection of persons subject to an asset freezing measure was not fully effective (grievance 10) " (our translation of the decision which is only available in French).

Full Reference : Frison-Roche, M.-A.,Attorney's Professional Secret & Filter mechanism in balance with fighting Money Laundering: constitutional analysis in favor of Attorney's Secret, Newsletter MAFR - Law, Compliance, Regulation, October 9, 2020.

Summary: By its judgment of September 24, 2020, the Constitutional Court of Belgium released an essential judgment which considers:
- Compliance Law which imposes obligations on entities to fight against money laundering and the financing of terrorism is legal requirements which must be analyzed on the basis of these goals
- the national transposition law is "broader" than the transposed European texts since it is anchored in the Constitution
- the provisions of the law imposing the declaration of suspicion on an employee of the Attorney or on a Compliance Officer concerning information covered by the professional secrecy of the Attorney, the basis of Democracy, must therefore be canceled.
This reasoning is remarkable and very solid.
It is not unique to Belgium.

Lire par abonnement gratuit les autres News dans la Newsletter MAFR - Law, Compliance, Regulation

Full reference: Constitutional Court of Belgium, 24th of September 2020, Décision concernant le recours en annulation partielle de la loi du 18 septembre 2017 relative à la prévention du blanchiment de capitaux et du financement du terrorisme et à la limitation de l'utilisation des espèces (decision concerning the partial annulment appeal of the law of 18th of September 2017 related to money laundering and terrorism financing prevention and to the restriction of the use of cash), n°114/2020

Read the decision (in French)

Read the law of 18th of September 2017 (in French)

Full reference: Frison-Roche, M.-A., Compliance & Regulatory Soft Law, legal Certainty and Cooperation: example of the U.S. Financial Crimes Enforcement Network new Guidelines on AML/FT, Newsletter MAFR - Law, Compliance, Regulation, 2nd of September 2020

Read by freely subscribing other news of the Newsletter MAFR - Law, Compliance, Regulation

Summary of the news

The Financial Crimes Enforcement Network (FinCEN) is an organ, depending on the American Treasury, in charge of fighting against financial criminality and especially against money laundering and terrorism financing. For this, it has large control and sanction powers. 

In August 2020, the FinCEN published a document untitled "Statement on Enforcement" which aimed to explicit its control and sanction methods. It reveals what firms risk in case of offense (from the simple warning letter to criminal pursuits passing through financial fines) and the different criteria on which FinCEN is based to use one sanction rather than another. Among these criteria, we find for examples the nature and the seriousness of committed violations or the firm's history but also the implementation of compliance program or the quality and the spread of the cooperation with FinCEN durning the investigation. 

One of the objectives of the publication of such an information document is to obtain the cooperation of firms by creating a confidence relationship between the regulator and the regulated firm. However, it is very difficult to ask to the firms to cooperate and to furnish information if they can fear that this same information can be used later as proof against them by the FinCEN. 

Another objective is to reinforce legal security and transparency. However, the FinCEN's declaration does not seem to commit it, because it is not presented as a chart but as a simple declaration. Indeed, the list of the possible sanctions and the criteria used by the FinCEN are far from being exhaustive and can be completed in concreto by the FinCEN without any justification.

Full reference: Frison-Roche, M.-A., Why the decision of the French Constitutional Council of 7.08.2020 about authors of terrorist offences is so informative for Compliance & Criminal Law, Newsletter MAFR - Law, Compliance, Regulation, 13th of August 2020

Read, by freely subscribing, the other news in the Newsletter MAFR - Law, Compliance, Regulation 

Summary of the news

On 7th of August 2020, the Conseil Constitutionnel (French Constitutional Court) made a decision concerning the constitutionality of a French law implementing safety measures against authors of terrorist offenses after their sentence. The law permitting to impose, through an act from the administration, various controls or interdiction to communicate with some people for authors of terrorist offenses after the end of their sanction.  

Although the Conseil Constitutionnel estimated that such dispositions was disproportionate with regards to the objective, which prompted it to censor the text, it recognized that, since terrorism seriously disturbs public order through intimidation and terror, the fight against terrorism contributes to the objective of constitutional value consisting of preventing attacks on the public order. Thus it is not the nature but the intensity of the proposed measures which pushed the Conseil Constitutionnel to state this text not constitutional. By the way, the Conseil affirms that if the legislator submits it a law whose the measures are more proportionate to the goal, these, although Ex Ante and justified only by the existence of a risk, will be declared in conformity with the Constitution.

The Conseil Constitutionnel confirms here that the fight against terrorism financing is a "monumental goal" of Compliance Law. 

Discours d'Emmanuel Macron, président de la République, au Forum "Gouvernance Internet", Unesco, 13 novembre 2018. 

Lire le Discours. Compl

Lire l'Ordonnance rendue par le Conseil d’État.

La personne avait saisi les juges administratifs car il est l'objet dans sa détention d'une télésurveillance en continue.

Sa détention provisoire est organisée dans le cadre d'une procédure sur des faits d'homicides multiples s'étant déroulés dans le lieu de spectacle "Le Bataclan".

La personne conteste le traitement dont il est l'objet, notamment parce que le caractère continu de cette télésurveillance constituerait une atteinte à sa vie privée, dont la protection est protégée par un droit de l'homme dont il est titulaire au terme de l'article 8 de la Convention européenne des droits de l'Homme.

Le 15 juillet 2016, le juge administratif des référés rejette sa demande.

Sur recours, le Conseil d’État par une ordonnance rendue par trois juges des référés rejette le recours.

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Le Conseil d’État rappelle la charge de preuve qui pèse sur celui qui veut obtenir la suppression du dispositif en alléguant son droit subjectif : le requérant doit démontrer que "la mesure dont il fait l’objet serait manifestement incompatible avec les stipulations de l’article 8 de la convention européenne de sauvegarde des droits de l'homme et des libertés fondamentales", ce qui la rendrait de ce fait manifestement illégale et devrait alors être rapportée.

L'Ordonnance est longuement motivée, pour justifier ce qui est désigné par le Conseil d’État comme   "la compatibilité de l’atteinte portée au droit de M. B...au respect de sa vie privée avec l’article 8 de la convention européenne de sauvegarde des droits de l'homme et des libertés fondamentales".

Le Conseil d'Etat rappelle que "il résulte de l’instruction que tant le caractère exceptionnel des faits pour lesquels M. B... est poursuivi, qui ont porté à l’ordre public un trouble d’une particulière gravité, que le contexte actuel de poursuite de ces actes de violence terroriste, font, à la date de la présente décision, obligation à l’administration pénitentiaire de prévenir, avec un niveau de garantie aussi élevé que possible, toute tentative d’évasion ou de suicide de l’intéressé".

Il poursuivit la première partie de son raisonnement : "eu égard à la forte présomption selon laquelle ce dernier peut bénéficier du soutien d’une organisation terroriste internationale disposant de moyens importants, et alors même qu’il n’aurait pas manifesté à ce jour de tendance suicidaire, sa surveillance très étroite, allant au-delà de son seul placement à l’isolement, revêt ainsi, à la date de la présente décision, un caractère nécessaire".

Puis le Conseil d’État passe à la seconde question et souligne que : "il résulte également de l’instruction que l’administration, qui devra statuer sur le maintien de la mesure de vidéosurveillance continue au plus tard à l’échéance de la durée de trois mois prévue par la décision du 17 juin 2016, est également en mesure de s’assurer régulièrement de son bien fondé, notamment, ainsi qu’il a été rappelé à l’audience, par l’existence d’une surveillance médicale régulière ; que compte tenu de cette circonstance, ainsi que des modalités de mise en œuvre de la vidéosurveillance, qui comportent notamment la mise en place de dispositifs permettant de respecter l’intimité de la personne, l’absence de transmission ou d’enregistrement sonore, l’usage, ainsi qu’il a été précisé à l’audience, de caméras à infrarouge pendant la nuit, l’absence de dispositif biométrique couplé, la limitation de la durée de conservation des images et l’encadrement de leurs droits d’accès, la mesure contestée ne porte pas au droit au respect de la vie privée du requérant une atteinte manifestement disproportionnée aux buts en vue desquels elle a été établie".

Les systèmes politiques sont désorientés face aux mouvements terroristes nouveaux, notamment celui qui a l'audace de prendre l'appellation d'État islamique.

Les États pensent à des solutions, mais la difficulté vient du fait que les personnes auxquelles ils sont confrontés n'ont pas encore commis d'actes. Leur acte consiste à partir pour rejoindre un mouvement, concrétisation de leur liberté d'aller et venir. Certes, l'État sait que ce déplacement n'a de sens que pour participer à des actions interdites, à savoir tuer en masse. Mais "sur le moment", l'acte en lui-même ne semble pas répréhensible.

Le Royaume-Uni a l'ingéniosité de faire renaître l'interdiction de la "double allégeance" pour affirmer que le seul fait de prétendre agir par obéïssance à un autre que la Couronne suffit à constituer un acte criminel (la "Haute trahison").

Dans sa chronique du 31 octobre 2014, Brice Couturier se demande s'il convient de "juger les jihadistes plutôt que de les refouler".

En effet, et d'une façon logique, il se demande s'il ne convient pas, plutôt que de restreindre leur liberté d'aller et de venir, de les laisser partir, passivement en les empêchant, peut-être activement en les autorisant.  Si par la suite, s'il s'avère qu'ils commettent des actes répréhensibles, dans ce second temps, il sera possible, adéquat de les appréhender et de leur reprocher efficacement l'acte criminel enfin perpétré.

Brice Couturier affirme que cela serait plus légitime que de procéder comme le fait le projet de loi de lutte contre le terrorisme, déjà votée par l'Assemblée Nationale le 29 octobre 2014 et soumis désormais au Sénat.

En effet, ce texte réprime un comportement consistant notamment à consulter des sites Internet, à préparer des explosifs,  à détenir des armes, à repérer des cibles, etc., sans qu'un acte ait été encore commis. Pour les pénalistes, cela n'est pas conforme à l'exigence du droit pénal classique, lequel exige un acte pour que la personne soit sanctionnée. La seule intention ne peut justifier une condamnation. L'infraction comprend non seulement l'élément légal et l'élément intentionnel, mais encore l'élément matériel. Nous verrons ce que le Conseil constitutionnel en dira.

Mais suivons ce raisonnement. Plutôt que de sanctionner avant l'acte, expulsons les personnes pour mieux qu'elles le commettent et ainsi, dans le respect de Beccaria, les sanctionner par la suite, les trois attributs de l'infraction étant réunis.

Comment attrape-t-on les personnes ayant rejoint le mouvement terroriste, à la fois international et infiltré, une fois que l'État a concrétisé leur liberté d'aller et venir par le biais paradoxal de l'expulsion ?

Full reference: United-Kingdom Parliament, UK Bribery Act, 2010

Read the text