Rule · MFSA · 18 Oct 2023
The Malta Financial Services Authority issued this circular to address the transposition of Directive (EU) 2023/2025 on Credit Agreements for Consumers and to implement relative amendments to the Conduct of Business Rulebook for Credit Institutions. The regulatory framework updates the rules governing credit institutions offering retail products to align with the new Consumer Credit Directive II requirements. These amendments become applicable as of 20 November 2026, ensuring compliance with the repealed Directive 2008/48/EC replacement.
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Circular in Relation to Directive (EU) 2023/2025 of the European Parliament and of the Council of 18 October 2023 on Credit Agreements for Consumers and Repealing Directive 2008/48/EC (Consumer Credit Directive II) (CCD II) and Its Transposition and Relative Amendments to the Conduct of Business Rulebook for Credit Institutions Offering Retail Products (COBR) Introduction This Circular is addressing Credit Institutions and Financial Institutions offering consumer credit agreements in Malta and falling within scope of Directive (EU) 2023/2225 of the European Parliament and of the Council of 18 October 2023 on credit agreements for consumers and repealing directive 2008/48/EC (hereinafter referred to as the Consumer Credit Directive II (CCD II)). This Circular seeks to highlight the main changes which are being introduced within the Conduct of Business Rulebook for Credit Institutions Offering Retail Products (herein referred to as “the COBR”) and which will come into force on 20 November 2026 to reflect the CCD II requirements. CCD II – Background CCD II was developed in order to modernize consumer credit regulations in response to digitalization and new credit products which have significantly transformed the consumer credit market. CCD II repealed Directive 2008/48/EC known as CCD I and broadened the regulatory framework for consumer credit agreements across the European Union (EU) to better protect consumers and promote fair lending practices. CCD II scope extends to cover a wider range of credit agreements, including revolving credit and certain high-cost short-term loans that were previously excluded. Overall, the CCD II brings along harmonization among EU Member States, ensuring consistent consumer protection standards, while fostering a more competitive and integrated credit market in the European Union. 20 November 2025
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The main changes brought about by CCD II include stricter rules on creditworthiness assessments to prevent over-indebtedness, more transparent pre-contractual information for consumers, such as advertising which must now present standard information prominently and include explicit warnings, such as “borrowing money costs money.” Misleading practices, such as claims that credit will improve the financial wellbeing of consumers or that creditworthiness checks are irrelevant, are being prohibited. Importantly, the directive requires that consumers are informed when pricing is determined through automated processing, and they must be given the right to human intervention and explanations in such cases. The Directive enhanced consumers rights to withdraw from agreements via a 14-day period, whereby they can withdraw from a credit agreement without a penalty. CCD II also provided stronger supervision of credit intermediaries. Additionally, CCD II introduces limits on borrowing / interest rates, annual percentage rates of charge and total costs of credit agreements. The Directive also requires creditors to inform consumers of the reasons behind a credit application rejection and to ensure timely notification of credit repayment arrears in databases. The CCD II is being adopted, published and transposed into Maltese Law by 20 November
2025. However, a one-year period is being provided for its implementation to provide
sufficient time to the industry to align to its requirements. Hence for any avoidance of doubt, it is being clarified that CCD II will be implemented by 20 November 2026. CCD II – Transposition into Maltese Law CCD II is being transposed into Maltese law to the extent that it applies to entities regulated by the MFSA, that is, credit institutions and financial institutions via the following documents:
(1) With respect to Credit Institutions:
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Furthermore, the revised COBR together with the Regulations (to be published in due course) will, amongst others, enable the Malta Financial Services Authority (the “MFSA” or “the Authority”) to oversee the protection of consumers particularly vis-à-vis consumer credit agreements and ensure that its license holders act honestly, professionally and in accordance with the best interest of the consumer. The Regulations The CCD II transposition package includes transposition into three Regulations which will be published in due course and which are further explained below:
(1) Banking Act (Consumer Credit) (Amendment) Regulations, 2025 With respect to credit institutions, the majority of CCD II requirements are reflected and transposed within the COBR which provides for those requirements which need to be carried out by Credit Institutions. With respect to the remaining CCD II requirements, these are being reflected and transposed within the Banking Act (Consumer Credit) (Amendment) Regulations, 2025. The latter Regulations are amending the Banking Act (Consumer Credit) Regulations, 2025 which are transposing CCD I requirements in the context of the legislative amendments necessary to bring into effect the COBR in March 2026. Besides amending the Banking Act (Consumer Credit) Regulations, 2025 to reflect CCD II requirements, the Banking Act (Consumer Credit) (Amendment) Regulations, 2025 also reflect and entail the powers of the Competent Authority (MFSA) with respect to implementation of CCD II requirements. (2) The Financial Institutions Act (Consumer Credit) Regulations, 2025 With respect to financial institutions, and in view that there is no Conduct of Business Rulebook applicable to financial institutions for the time being, the CCD II requirements applicable to financial institutions are being transposed in the Financial Institutions Act (Consumer Credit) Regulations, 2025. The latter Regulations are repealing previous regulations with same name, which had transposed the requirements of CCD I. These Regulations now entail CCD II requirements applicable to financial Institutions as well as the Competent Authority (MFSA) powers to implement same. (3) Consumer Credit Intermediaries (Admission) Regulations
Article 37 of CCD II introduces the obligation to ensure that credit intermediaries
are subject to an admission process. As a result, the Consumer Credit Intermediaries (Admission) Regulations which will be issued in due course will transpose this requirement. These Regulations contain the requirements for admission, the powers of the Authority in terms of the admission process, and
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+356 2144 1155 other standard legal provisions including the power to issue Credit Intermediaries Rules that will go into further detail in terms of the requirements for admission. These regulations do not contemplate any cross-border elements such as passporting and exchange of information since there is no passporting of the activities of credit intermediaries under CCD II (unlike the Mortgage Credit Directive). These three regulations will be issued under both the Banking Act and the Financial Institutions Act since such credit intermediaries could be acting on behalf of credit institutions, financial institutions, or potentially both as the case may be, and as may be determined by the Authority. Main changes to be introduced in the COBR The purpose of this section aims to highlight the main changes which will be introduced within the COBR. These are being split as follows:
(1) Main changes brought about by CCD II
(2) Options and national discretions taken by the MFSA (3) Options and national discretions not taken by the MFSA For ease of reference, the main changes in the COBR rules are being indicated below and enclosed as Annex A with this circular. (1) Main changes brought about by CCD II The main changes introduced in the COBR are being summarized hereunder:
(a) Extended Scope
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(b) Advertising and Pre-Contractual Information
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(f) Introducing limits or caps on Annual Percentage Rate of Charge
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(ii) With respect to creditors:
Likewise, this requirement already existed under Directive 2024/17/EU of the European Parliament and of the Council of 4 February 2014 on credit agreements for consumers relating to residential immovable property and amending Directives 2008/48/EC and 2013/36/EU and Regulation (EU) No 1093/2010 (MCD) which was transposed in Credit Agreements for Consumers relating to Residential Immovable Property Regulations (Subsidiary Legislation 378.10), more specifically in the Third Schedule. In line with CCD II requirements, similar knowledge and competence requirements are now being introduced for credit institutions and financial institutions. These requirements provide that staff of creditors and creditor intermediaries need to possess specific knowledge on offering and granting of consumer credit agreements. (i) Admission of Credit Intermediaries:
In view that Credit Intermediaries staff under CCD II are required to possess knowledge and competence in relation to consumer credit agreements and in view that such Credit Intermediaries need also to be supervised by the MFSA, the Consumer Credit Intermediaries (Admission) Regulations are being issued to provide for the Admission of Credit Intermediaries under CCD II. This, is also with a view to aligning with the requirement of Art 33(3) and Art 37 (1) of CCD II. These admission regulations will provide for a structured process regulating the admission, registration and supervision of credit intermediaries. (2) Options and National Discretions TAKEN by the MFSA Additionally, the CCD II provides a number of Member State options, which provide flexibilities that permit individual EU Member States to tailor certain rules to their national context. These options relate to matters such as High-Cost Short-Term Credit, Advertising Restrictions, Licensing and Supervision of Credit Intermediaries, Creditworthiness Assessment Requirements, Consumer Withdrawal Rights and Additional Consumer Information. These are explained in further detail below:
The options taken and reflected in the COBR are the following:
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(a) deferred debit cards do not fall in scope:
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(c) Prohibited Advertising:
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(g) Creditworthiness and consultation to the relevant database:
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+356 2144 1155 concerns the Annual Percentage Rate of Charge (APRC) which should not exceed 16% in case of Regulated Persons offering consumer credit agreements within Malta. This maximum annual percentage rate of charge may be revised at the discretion of the Malta Financial Services Authority. In determining the new APRC limit the MFSA has carried out an in-depth assessment whereby it looked into the APRC of consumer credit agreements currently offered in Malta as well as the current APRC limits / caps applicable in other EU Member States. It is to be noted that for credit agreements offered in other EU Member States, by MFSA authorised Regulated Persons, these should abide by any similar caps or restrictions imposed by such EU Member States within their respective territories. (j) Default charges:
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(b) Credit Unions:
Art 2 (6) of CCD II allows Member States to determine the applicability or otherwise of particular CCD II clauses to credit unions. In view that there are no credit unions operating within Malta, this option is not deemed applicable to Malta. (c) Applicability of certain CCD II requirements or otherwise to credit agreements of less than €200, credit agreements where credit is granted free of interest and credit agreements where the credit has to be repaid within three months:
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(e) Conditions on the use of terms “independent advice” or “independent advisor”:
Article 16 (4) (last paragraph) of CCD II provides the option that the Member States may
impose more stringent requirements for the use of the terms ‘independent advice’ or ‘independent advisor’ by creditors and, where applicable, credit intermediaries. This option is not taken, in the light of the approach taken in the context of Article 16(4) where the term “advice” and “Advisors” are being prohibited as indicated earlier on in this document. (f) Conclusion of Credit Agreements:
Article 20 (2) of CCD II permits Member States to introduce or maintain national rules
regarding the validity of the conclusion of credit agreements which are in conformity with Union law. This option already existed under CCD I but was not taken. The MFSA is maintaining same approach, and this option is not taken. (g) Overdraft Facilities:
Article 24 (5) of the CCD II provides Member States the possibility to maintain or adopt
more stringent provisions on matters related to the protection of consumers holding an overdraft facility in accordance with Union law. This option was already provided under CCD I and it was not taken with a view to keep in line with the minimum requirements posed, without imposing stringer restrictions on creditors. In this regard the MFSA is retaining same approach in line with previous stance. (h) Overrunning:
Article 25 (6) of CCD II provides that Member States may maintain or adopt more
stringent provisions on matters related to the protection of consumers holding an overrunning other than those referred to in Article 25 of CCD II. This option is not taken. This option was already provided under CCD I and was not taken and hence the MFSA is maintaining same approach. (i) Linked Credit Agreements:
In relation to linked credit agreements and the right of withdrawal, Article 26 (4) of the CCD II permits Member States to choose a shorter withdrawal period in case National legislation existing prior to 19 November 2023 provided for such right of withdrawal and in case this was explicitly requested by the consumer. This option is not applicable to Malta as there was no such legislation applicable on 19th November 2023. Furthermore, and also in relation to Linked Credit Agreements, Article 26 (8) of the CCD II permits the non-application of specific clauses relating to the right of withdrawal, in case that the credit agreements is concluded through the services of a notary. In view that in
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Malta consumer credit agreements are not concluded through the services of a notary, this option is not deemed applicable to Malta. (j) Ban on Commissions:
Article 32 (4) of CCD II permits Member States to choose whether to ban commissions
paid by the creditor to the credit intermediary. This option is not being taken at this stage, in view that currently there are no credit intermediaries operating within Malta.
Article 32 (5) of CCD II also permits the Member States to prohibit or impose restrictions
on the payments from a consumer to a creditor or a credit intermediary prior to the conclusion of a credit agreement. This option is not being taken in the context of credit agreements issued by banks and financial institutions as this situation does not arise in the context of credit agreements issued by banks and financial institutions since payments for such loans only take place after drawdowns and after the conclusion of the credit agreement. (k) Default Charges:
Article 35 (4) of the CCD II provides that Member States who allow creditors to impose
additional charges on the consumer in the event of default, those Member States shall place a cap on those charges. In view that the MFSA has opted to adopt the option provided through Article 35(3) whereby it requires that charges are not greater than is necessary to compensate the creditor for costs it has incurred as a result of the default, this option is not being taken and hence no cap on charges need be applicable. Conclusion and the Way Forward The CCD II has a transposition deadline of 20 November 2025 and will come in force a year later on 20 November 2026. In this regard, a one-year period is being given to the industry and CCD II stakeholders, to align and conform with CCD II requirements. Regulated persons are hence being encouraged to update their consumer credit agreements processes in line with the CCD II requirements, and in line with the coming into force of CCD II, that is by 20 November 2026.
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Annex A – Main Changes to the COBR
Glossary of Definitions
Introduced the definition of “Borrowing Rate” Amended the definition of “Consumer Credit Agreements” Introduced the definition of “Debt Advisory Services” Introduced the definition of “Early Repayment” Introduced the definition of “Fixed Borrowing Rate” Introduced the definition of “Linked Credit Agreements” Introduced the definition of “Pre-Contractual Information” Introduced the definition of “Profiling” Introduced the definition of “Total amount of credit” Introduced the definition of “Total amount payable by the client” Introduced the definition of “Total cost of the credit to the client” Revised “Applicability in the context of Consumer Credit Agreements”
Chapter 1 - Disclosures
New R.1.1.2A
Deleted R.1.3.115
Revised R.1.3.116
New R.1.3.116A
Revised R.1.3.117 and R.1.3.118
New R.1.3.118A and R.1.3.118B
Revised R.1.3.119 to R.1.3.122
New R.1.3.122A to New R.1.3.122C
New R.1.3.128A
Revised R.1.3.129 to R.1.3.134
New R.1.3.134A to R.1.3.134C
Revised R.1.3.137 to Revised R.1.3.142
Revised R.1.3.144
New R.1.3.144A.1 to R.1.3.144A.3
New R.1.3.148B.1 to R.1.3.148B.6
Chapter 2 – Marketing Rules
Revised R.2.2.45
New R.2.2.47A.1 to R.2.2.47A.7
New R.2.2.47B.1 and R.2.2.47B.2
Chapter 3 – Product Oversight Arrangements
New R.3.13.63 to R.3.13.67
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Chapter 5 – Bank Client Relationships
New R.5.3.52A and R.5.3.52B
New R.5.4.131A.1 to R.5.4.131A.11
New R.5.4.131B.1 and R.5.4.131B.2
Revised R.5.191
New R.5.8.191A and R.5.8.191B
Revised R.5.8.192
Revised R.5.8.195
New R.5.8.195A.1 to R.5.8.195A.3
Deleted R.5.9.199
Revised R.5.9.201 and R.5.9.202
Revised R.5.9.204 to R.5.9.206
New R.5.10.215A.1 and R.5.10.215A.2
New R.5.10.217A to R.5.10.217C
New R.5.11.273A.1 to R.5.11.273A.3
New R.5.11.273B.1 to R.5.11.273B.2
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“The latter Regulations are repealing previous regulations with same name, which had transposed the requirements of CCD I.”
“Circular in Relation to Directive (EU) 2023/2025 of the European Parliament and of the Council of 18 October 2023 on Credit Agreements for Consumers and Repealing Directive 2008/48/EC (Consumer Credit Directive II) (CCD II)”
“Directive 2024/17/EU of the European Parliament and of the Council of 4 February 2014 on credit agreements for consumers relating to residential immovable property”
“CCD II repealed Directive 2008/48/EC known as CCD I and broadened the regulatory framework for consumer credit agreements across the European Union (EU)”
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