COMMISSION STAFF WORKING DOCUMENT 2025 Rule of Law Report Country Chapter on the rule of law situation in France Accompanying the document Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions 2025 Rule of Law Report The rule of law situation in the European Union
Date: 2025-07-08
Institutions: European Commission, Secretariat-General
Subjects: France, administrative transparency, corruption, democracy, freedom of the press, human rights, independence of the judiciary, pluralism in the media, rule of law, whistleblowing

EN 

  EN 

   EUROPEAN COMMISSION  Strasbourg, 8.7.2025  SWD(2025) 910 final  COMMISSION STAFF WORKING DOCUMENT 2025 Rule of Law Report                   Country Chapter on the rule of law situation in France Accompanying the document Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions 2025 Rule of Law Report                     The rule of law situation in the European Union {COM(2025) 900 final} - {SWD(2025) 901 final} - {SWD(2025) 902 final} - {SWD(2025) 903 final} - {SWD(2025) 904 final} - {SWD(2025) 905 final} - {SWD(2025) 906 final} - {SWD(2025) 907 final} - {SWD(2025) 908 final} - {SWD(2025) 909 final} - {SWD(2025) 911 final} - {SWD(2025) 912 final} - {SWD(2025) 913 final} - {SWD(2025) 914 final} - {SWD(2025) 915 final} - {SWD(2025) 916 final} - {SWD(2025) 917 final} - {SWD(2025) 918 final} - {SWD(2025) 919 final} - {SWD(2025) 920 final} - {SWD(2025) 921 final} - {SWD(2025) 922 final} - {SWD(2025) 923 final} - {SWD(2025) 924 final} - {SWD(2025) 925 final} - {SWD(2025) 926 final} - {SWD(2025) 927 final} - {SWD(2025) 928 final} - {SWD(2025) 929 final} - {SWD(2025) 930 final} - {SWD(2025) 931 final}  
 
 
ABSTRACT 

In  France,  the  law  of  20  November  2023  reforming  the  status  of  magistrates  is  being 
implemented.  The  Superior  Council  of  Magistracy  defended  judicial  independence  in 
response to concerns raised by attacks on magistrates related to judicial decisions. Budgetary 
efforts are being made to allow for an increase the number of magistrates. The digitalisation 
projects  of  judicial  procedures  were  further  rolled  out.  Online  access  to  court  decisions 
improved further. A reflection is ongoing about possible solutions to address some challenges 
with regard to the efficiency of the justice system. 

The  2024-2029  national  anti-corruption  plan  is  expected  to  be  adopted  by  summer  2025. 
Efforts  to  prosecute  corruption  increased,  including  as  regards  high-level  cases,  with 
additional human resources allocated to investigation authorities, and new legislative tools in 
place.  The  Anti-Corruption  Agency  (AFA)  was  reorganised  to  improve  its  effectiveness 
while the High Authority for the Transparency in Public Life (HATVP) increased its human 
resources  to  address  an  increased  workload.  The  2023  guidelines  on  the  lobby  register  are 
being implemented, but disclosure requirements continue to apply to lobbyists only and not to 
officials  at  top-executive  level.  Integrity  measures  for  police  officers  are  applied,  and  new 
ethics measures for Members of Parliament,  officials  at  top-executive level and magistrates 
were  adopted.  The  number  of  whistleblower  reports  received  by  the  various  authorities 
continued to increase. Initiatives are in preparation to combat corruption linked to organised 
drug trafficking and affecting ports. 

France’s  media  regulator,  ARCOM,  has  undergone  significant  developments,  expanding  its 
regulatory scope and activities in anticipation of new obligations and mandates. The proposed 
reform  of  public  broadcasting  governance  and  the  creation  of  a  holding  company  is  the 
subject of debate and practical avenues to strengthen coordination among public broadcasters 
are being sought. Steps have been taken to improve media ownership transparency, with the 
preparation of a national ownership database. Despite strong legal guarantees on the right to 
access  documents,  journalists  report  challenges  about  its  practical  implementation.  A 
legislative  proposal,  based on  the  outcome  of a  broad  national  consultation, is being  prepared to 
better safeguard the right to information. 

Legislative  simplification  efforts  are  welcomed  by  businesses  while  stakeholders  raise 
concerns regarding the consultation of citizens. Discussions are ongoing on the safeguards to 
be  put  in  place  when  using  artificial  intelligence  in  the  justice  system.  The  financial 
environment of civil society organisations remains favourable despite budgetary restrictions.  

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RECOMMENDATIONS 

Overall, concerning the recommendations in the 2024 Rule of Law Report, France has made: 

•  Some further progress on completing ongoing projects aimed at full digitalisation of civil 

and criminal court proceedings. 

•  Some  further  progress  on  ensuring  that  rules  on  lobbying  activities  are  consistently 

applied to all relevant actors, including at top executive level. 

•  Significant  progress  on  improving  the  transparency  of  media  ownership,  in  particular, 

complex shareholding structures, building on the existing legal safeguards. 

On this basis, and considering other developments that took place in the period of reference, 
it is recommended to France to: 

•  Step  up  efforts  to  complete  ongoing  projects  aimed  at  full  digitalisation  of  civil  and 

criminal court proceedings.  

•  Continue  ongoing  efforts  to  ensure  that  rules  on  lobbying  activities  are  consistently 
applied  to  all  relevant  actors,  including  at  top-executive  level,  and  take  forward  the 
legislative process on the draft laws on lobbying.  

•  Complete ongoing reforms to improve the transparency of media ownership, in particular, 

complex shareholding structures, building on the existing legal safeguards.  

2 

 
 
 
 
 
 
 
 
 
I. 

JUSTICE SYSTEM1  

Independence  

The level of perceived  judicial independence in France continues to be average among 
both the general public and companies. Overall, 51% of the general population and 53% of 
companies perceive the level of independence of courts and judges to be ‘fairly or very good’ 
in  20252.  The  perceived  judicial  independence  among  the  general  public  has  slightly 
decreased in  comparison with 2024 (54%), as well as in comparison  with 2021 (57%). The 
perceived  judicial  independence  among  companies  has  increased  in  comparison  with  2024 
(48%), although it remains lower in comparison with 2021 (58%).  

The law of 20 November 2023 reforming the status of magistrates is being implemented. 
With  regard  to  admissions  in  the  magistracy,  the  age  limit  has  been  repealed  and 
competitions  opened,  including  to  recruit  a  wider  variety  of  profiles.  A  360°  evaluation 
process is being created for presidents of courts and tribunals. The transfer of a magistrate to 
the  private  sector  is  now  controlled  by  the  Superior  Council  of  the  Magistracy,  with  the 
Justice Minister kept informed. It is too early to evaluate the implementation of the reform of 
the  magistrates’  disciplinary  regime3.  The  constitutional  reforms  relating  to  the  status  of 
prosecutors, both in terms of their disciplinary regime and their appointment rules, have not 
advanced, despite a broad consensus4. A draft law has been submitted by the Parliament to 
create a prosecutor general against organised crime5.  

The  Superior  Council  of  Magistracy  defended  judicial  independence  in  response  to 
concerns raised by attacks on magistrates related to judicial decisions. Judicial decisions 
relating to candidates to national elections have in particular been faced with strong criticism 
from the public and some elected officials. In some cases, judges have been facing personal 
attacks, including serious threats to their safety. On 31 March 2025, the Superior Council of 
the Magistracy, supported by magistrates’ associations6, reiterated its concerns with regard to 
these attacks,  which seriously  undermine  the independence of the judicial authority and the 
rule  of  law7.  Concerns  have  also  been  raised  publicly  by  individual  magistrates,  including 
from  the  highest  courts.  Magistrates  were  supported  by  the  President  of  the  Republic,  who 
recalled  that  the  “justice  system  is  independent  and  must  be  respected  as  a  pillar  of  the 
democracy”8.  

1  An overview of the institutional framework for all four pillars can be found here.  
2   Figures 50 and 52, 2025 EU Justice Scoreboard and Figures 49 and 51, 2023 EU Justice Scoreboard. The 
level  of  perceived  judicial  independence  is  categorised  as  follows:  very  low  (below  30%  of  respondents 
perceive judicial independence as fairly good and very good); low (between 30-39%), average (between 40-
59%), high (between 60-75%), very high (above 75%). 
3   Country visit France, Magistrates’ and Magistracy’s Unions. 
4   French Government (2025), second written input, p. 50. 
5   Organic  law  adopted  by  the National  Assembly,  establishing  the  status  of  the prosecutor  of  the  Republic 

against organised crime, on April 29, 2025, T.A. No. 103. 

6   Country visit France, Magistrates’ and Magistracy’s Unions (Union Syndicale des Magistrats et Syndicat de 

la Magistrature). 

7   CSM  Press  release,  Defence  of  the  independence  of  the  judicial  authority  following  the  reactions  to  the 
decision  issued  by  the  Tribunal  of  Paris  on  31  March  2025.  Lawyers  also  faced  attacks.  CCBE  (2025), 
written input, p.4. 

8   Declaration of the President of the Republic, Elysee.fr.  

3 

 
 
 
 
 
Quality  

Budgetary  efforts are  being made to maintain  the objective  to increase the number of 
magistrates. A record number of 1000 magistrates are currently being trained at the National 
Magistracy  School.  After  1 246  recruitments  in  2023,  1 302  in  2024  including  391 
magistrates, more than 900 jobs will be created in 2025, including 338 magistrates and 433 
clerks. Significant wage enhancement measures are also planned. In order to contribute to the 
effort to reduce government expenditure, special attention is paid to controlling expenditure 
on non-permanent staff and infrastructure projects related to the courthouses9. The number of 
magistrates per 100 000 inhabitants (11,1) is still low compared to the EU average (22,17)10, 
in particular in overseas territories11. Several workload measuring tools have been developed 
these  last  years  by  the  Government,  with  the  support  of  magistrates’  unions12.  A  new 
observatory  of  the  workload  of  magistrates13  was  however  criticised  by  the  magistrates’ 
unions as limited in scope14.  

Some  further  progress  was  made  on  the  digitalisation  of  judicial  procedures15.  The 
Portalis tool, launched in 2015, is now being deployed in all labour courts and will further be 
extended  to  local  courts  in  202516.  Portalis  should  be  deployed  in  all  civil  jurisdictions 
between 2026 and 2028. The digitalised penal procedure17 continues to be deployed as well, 
but  has  not  yet  reached  the  highest  criminal  courts18.  In  general,  the  digitalisation  is 
welcomed by the magistrates, but they consider that the implementation process is slow, and 
they would still face daily technical issues19. The system allowing to request legal aid online 
(SIAJ)  has  been  developed  further.  In  2024,  18%  of  legal  aid  applications  were  handled 
online.  In  view  of  these  continued  efforts,  there  has  been  some  further  progress  on  the 
digitalisation of civil and criminal court proceedings.   

Online access to court decisions improved further. More than one million decisions were 
accessible through open data at the end of 2024. All decisions by administrative courts can be 
consulted  online,  except  those  of  specialised  administrative  jurisdictions.  Decisions  of 
judicial  courts  of  first  instance  are  put  online  progressively.  Decisions  of  the  Court  of 
Cassation,  the  courts  of  appeal  in  civil  and  commercial  matters  are  accessible  online. 

9   French Government (2025), second written input, p. 47. Country visit France, Magistrates’ Union (SM). 
10   Figure 37, 2025 EU Justice Scoreboard. 
11   Country visit France, Defender of Rights and CNCDH. 
12   2024 Rule of Law Report, France, p. 6. The conclusions of this 10-year-project have not been made public 

yet. 

13   Country visit France, Ministry of Justice. 
14   Country  visit  France,  Magistrates’  and  Magistracy’s  Unions.  In  their  view,  the  work  done  before  the 
creation of this observatory showed that the number of magistrates should be doubled, in line with figures 
presented by CEPEJ (2024) and in the 2025 EU Justice Scoreboard, Figure 37. Only 20 courts participate in 
the new study launched by the observatory, and it would concern only 36% of magistrates’ activities. 
15   The  2024  Rule  of  Law  Report  recommended  France  to  ‘Further  continue  efforts  to  complete  ongoing 

projects aimed at full digitalisation of civil and criminal court proceedings’. 

16   ‘Tribunaux de proximité’. 
17   Procédure Pénale Numérique. 
18   Regional  criminal  courts  (for  crimes  punished  by  less  than  20  years  imprisonment)  and  highest  criminal 
court (‘cour d’assises’: for crimes punished by at least 20 years imprisonment). French Government (2025), 
second written input, p. 52. 

19   Country visit France, Magistrates’ and Magistracy’s Unions. 

4 

 
 
 
 
 
Decisions  of  criminal  courts  are  being  uploaded  progressively,  with  a  deadline  on  31 
December 202520. 

Efficiency 

A reflection is ongoing about possible solutions to address challenges with regard to the 
efficiency of the justice system. The average time to resolve litigious civil and commercial 
cases remains quite high (354 days in 2023), after a significant decrease in 2022 (333 days, 
compared  to  595  in  2021).  It  is  higher  at  second  (507  days)  as  well  as  third  instance  (510 
days). With regard to cases related to bribery at the first instance courts, the average time to 
resolve litigious cases is the highest in the EU (1 335 days (3.8 years))21. The clearance rate 
continued to decrease and is at 93% in 2023 in civil, commercial and administrative cases22. 
Business  organisations  consider  that  their  access  to  the  judge  is  limited  as  long  judicial 
procedures  would  discourage  them  to  go  to  court23.  Average  time  to  resolve  cases  is 
particularly high in certain areas of law, like family law, but also in criminal matters, where 
regional criminal courts, extended to the whole territory in 2023, face an important backlog24. 
In  reaction  to  popular  complaints  about  the  fact  that  the  French  justice  system  is  slow,  in 
autumn  2024  the  Ministry  of  Justice  put  in  place  three  ‘flash  missions’  about  solutions  to 
settle disputes outside court25, the scheduling of cases in criminal matters and the execution 
of sentences26. The reports of the ‘flash missions’ have been published on 13 May 2025 and 
include  several  recommendations  with  the  objective  to  refocus  the  judiciary  on  its  role, 
adjudicate within more reasonable time frames and execute sentences more expeditiously. 

II. 

ANTI-CORRUPTION FRAMEWORK  

The  perception  among  experts,  citizens  and  business  executives  is  that  the  level  of 
corruption in the public sector remains relatively low. In the 2025 Corruption Perceptions 
Index by Transparency International, France scores 67/10027 and ranks 10th in the European 
Union and 25th globally. This perception has been relatively stable over the past five years28. 
The  2025  Special  Eurobarometer  on  Corruption  shows  that  68%  of  respondents  consider 
corruption  widespread  in  their  country  (EU  average  69%)  and  8%  of  respondents  feel 
personally  affected  by  corruption  in  their  daily  lives  (EU  average  30%).  As  regards 

20   With an exception for crimes of lower quality (‘délits’ and ‘contraventions’) where the deadlines are resp. 
on 31 December 2026 and 31 December 2027.  Regulation of 28 April 2021, modified by Regulation of 6 
December 2024. French Government (2025), second written input, p. 51. 

21   Figures 6 and 22, 2025 Justice Scoreboard. 
22   Figures 10, 11 and 12, 2025 EU Justice Scoreboard. 
23   Country  visit  France,  business  organisations  (CPME  –  Confederation  of  SMEs;  FEEF  –  Federation  of 

Entreprises and Entrepreneurs in France; FCD – Federation of Commerce and Industry). 

24   Country  visit  France,  Magistracy’s  Union.  Ministry  of  Justice,  General  Judicial  Inspection  (2025).  Bar 

associations (2025), written input, p. 4. CCBE (2025), written input, p. 76. 

25   ‘Déjudiciarisation’.  This  idea  is  criticised  by  some  stakeholders  and  independent  authorities  as  it  would 
decrease  the  access  to  the  judge  and  shift  the  focus  from  increasing  staff  in  the  judiciary  (Country  visit 
France, Defender of Rights and CSOs). 

26   ‘Missions d’urgence relatives à la déjudiciarisation, à l’exécution des peines et à l’audiencement criminel et 

correctionnel’. 

27  The level of perceived corruption is categorised as follows: low (the perception among experts and business 
executives  of  public  sector  corruption  scores  above  79);  relatively  low  (scores between  79-60),  relatively 
high (scores between 59- 50), high (scores below 50). 
In 2020, the score was 69, while, in 2024, the score is 67. The score significantly increases/decreases when 
it  changes  more  than  five  points;  improves/deteriorates  (changes  between  4-5  points);  is  relatively  stable 
(changes from 1-3 points) in the last five years. 

28 

5 

 
 
 
 
 
businesses, 63% of companies consider that corruption is widespread (EU average 63%) and 
42%  consider  that  corruption  is  a  problem  when  doing  business  (EU  average  35%). 
Furthermore, 24% of respondents find that there are enough successful prosecutions to deter 
people  from  corrupt  practices  (EU  average  36%),  while  44%  of  companies  believe  that 
people  and  businesses  caught  for  bribing  a  senior  official  are  appropriately  punished  (EU 
average 33%)29.  

The 2024-2029 national anti-corruption plan is expected to be adopted by summer 2025. 
The  new  national  anti-corruption  plan  is  soon  to  be  adopted30  and  NGOs  have  called  for 
specific points to be taken into account31. The evaluation of the effectiveness of the national 
anticorruption policies in place from 2013 to 2024, performed by a group of authorities and 
experts coordinated by the Court of Audit remains pending, with no exact deadline foreseen.  

Efforts  to  prosecute  corruption  increased,  including  as  regards  high-level  cases,  with 
additional  human  resources  and  new  legislative  tools  in  place.  The  Central  Office  for 
Combating Corruption and Tax Offences (OCLCIFF) increased its staff, assessed the national 
integrity  risk,  and  continued  to  carry  out  investigations,  including  with  its  international 
counterparts32. The Chief of the National Financial Prosecutor (PNF) also indicated the need 
to  acquire  advanced  digital  tools  and  highly  specialised  officers,  in  order  to  strengthen  its 
investigations33.  A  new  law  was  passed  to  improve  the  prosecution  of  corruption  and  the 
recovery  of  assets34.  The  investigation,  prosecution  and  adjudication  of  corruption  cases, 
including  for  officials  at  top-executive  level  progressed35.  The  EPPO  investigated  four 
corruption cases in 2024, which accounts for around 2% of the total number of EPPO cases in 
France36.  The  Government  plans  to  address  existing  shortcomings  on  the  investigation  and 
prosecution of foreign bribery37. 

29   Data from Special Eurobarometer 561 (2025) and Flash Eurobarometer 557 (2025).  
30   The  new  national anti-corruption  plan  will  focus  on  corruption  in organised  drugs  crime;  interinstitutional 
coordination;  municipal  authorities;  business  protection;  and  international  action.  The  final  report  on  the 
implementation  of  the  previous  national  anti-corruption  plan  (for  2020-2022)  will  be  annexed  to  the  new 
anti-corruption plan. Country visit France, AFA. 

31   Country visit France, Anticor and TI-France. Stakeholders advocate for the development of integrity plans 
for  municipalities  above  100  000  inhabitants.  TI-France  (2025),  written  input,  pp.  2-19.  Civil  Liberties 
Union for Europe (2025). 

32   The  OCLCIFF  has  80  officers,  and  6  more  will  be  hired  in  2025,  to  fight  corruption  linked  to  drug 
trafficking.  In  2024,  OCLCIFF  participated  in  6  joint  investigations  with  its  European  partners.  French 
Government  (2025),  written  input,  p.  20.  NGOs  raised  concern  on  the  law  passed  to  reform  the  judicial 
police, which could affect the effectiveness of investigation against financial crimes and corruption. Law No. 
22 (2023). Anticor and TI (2025), written contributions, pp. 11 and 5, respectively. 

33   Chief National Financial Prosecutor (2025). In 2024, the PNF counted 20 magistrates, 9 specialist assistants, 
2 legal officers, 1 legal assistant and 18 members of the registry (i.e. 50 people in total). French Government 
(2025), written input, p. 24. 

34   Law  Warsmann  No.  582  (2024).  The  law  aims  to  increase  the  deterrence  of  measures  and  strengthen  the 
effectiveness of seizure and confiscation procedures. French Government (2025), written input, p. 25. These 
new measures were in principle welcome by some NGO. TI-France (2025), written input, pp. 12-13. 

35   There were investigations against 595 suspects of corruption, 170 police custodies, 4 public interest judicial 
agreements (CJIPs (alternative procedures), for a total of about EUR 28 900 000). NGOs raised concerns on 
the  design  of  those  alternative  measures.  TI-France  (2025),  written  input,  p.  10.  In  September  2024,  the 
Prime  Minister  office  issued  the  renewed  agreement  with  Anticor  allowing  them  to  be  a  plaintiff.  Prime 
Minister (2024). 
36   EPPO (2025), p. 31. 
37   The  eight  recommendations  issued  by  the  OECD  will  have  to  be  addressed  by  2026.  OECD  Phase  4 

Evaluation of France, March 2024. French Government (2025), written input, p. 21.  

6 

 
 
 
 
 
The Anti-Corruption Agency (AFA) was reorganised to improve its effectiveness, while 
the  High  Authority  for  Transparency  in  Public  Life  (HATVP)  increased  its  human 
resources  to  address  its  growing  workload. AFA  underwent  a  reorganisation  aimed  at 
improving its effectiveness, thus creating two separate departments: one for the public sector, 
and the other one for private actors38. For 2024, AFA continued to issue a series of studies, 
podcasts and guidelines on prevention of corruption in specific sectors, and supported public-
awareness  events,  with  a  particular  focus  on  local  administrations  and  small  enterprises39. 
The  new  President  and  two  members  of  the  board  of  the  HATVP  were  appointed  in  early 
2025. The number of asset and interests’ declarations received and examined by the HATVP 
significantly  increased  (+48%  compared  to  2023)40,  and  its  staff  reached  75  officials  in 
total41. The Authority transmitted several cases of non-disclosure for further examination to 
the Public Prosecutor office. The asset and interest declarations submitted to the HATVP by 
the  members  of  the  past  Government,  were  examined  and  published42.  The  HATVP  also 
organised training, awareness-raising events, and issued a higher number of opinions43.  

Some further progress was achieved regarding the implementation of rules on lobbying, 
but  disclosure  requirements  continue  to  apply  to  lobbyists  only  and  not  to  officials  at 
top-executive level44.  The 2023 guidelines on the lobby  register are being  implemented.  In 
2024, more lobbyists and lobbying activities were registered with the HATVP45, and a new 
law passed in October 2024 demands to record the declarations of lobbyists acting on behalf 
of foreign entities in a new specific online register, which is expected to be developed by the 
HATVP  in  July  202546.  Concerns  remain,  including  from  stakeholders,  given  the  lack  of 
disclosure requirements for officials at top-executive level themselves47. The two draft laws 

38   Within  its  competence,  each  department  is  responsible  for  both  advisory  and  control  activities.  The 
reorganization focused both on core competencies (of monitoring and advice), and administrative functions. 
AFA (2024h).  

39   AFA  (2024a-f).  AFA  delivered  27  awareness-raising  events  and  12  training  sessions  for  public 
administrations, and 35 meetings with corporations. French Government (2025), written input, p. 4 and 21. 
40   In  2024,  HATVP  received  13 103  declarations  of  assets  and  interests,  and  examined  5 122  of  them 
(compared to 8 816 and 3 536 respectively in 2023). In 2024, 27 cases for non-declarations were transmitted 
to the public prosecutor office (compared to 17 cases in 2023). HATVP (2025), written input, pp. 4-5. 

41   Compared to 71 in 2023, while the financial constraints required HATVP to close or delay some operations. 

HATVP (2025), written input, p. 4.  

42   HATVP  webpage.  Stakeholders  raised  concern  on  the  filing  of  asset  declaration  by  members  of  the 

Government. TI-France (2025), written input, p. 14. Civil Liberties Union for Europe (2025). 

43   Last year, HATVP issued 293 opinions on newly hired executive officers; 336 opinions on public-to-private 
mobility, and 639 opinions for public-to-public mobility, for which the rate of rejection remains extremely 
low.  HATVP  (2025),  written input,  p. 5.  HATVP  organised  22  awareness-raising  events  in  2024  and  met 
with 13 foreign counterparts. French Government (2025), written input, p. 23. 

44   The 2024 Rule of Law Report recommended to France to ‘Step up efforts to ensure that rules on lobbying 

activities are consistently applied to all relevant actors, including at top executive level’. 

45   In 2024, 3 215 lobbyists  and 15 633 lobbying activities were registered with the HATVP,  which launched 
112  controls.  In  accordance  with  the  2023  HATVP  guidelines  asking  national  lobbyists  to  declare  their 
foreign clients, 8 declarations of this type were received in 2024. HATVP (2023). HATVP (2025), written 
input, pp. 1-5. 

46   The  HATVP  is  developing  the  specific  online  registry  for  foreign  lobbyists,  and  each  Chamber  of  the 
Parliament  will  have  to  adopt  its  own  bylaw.  HATVP  (2025),  written  input,  p.2.  Law  No.  850  (2024). 
French Government (2025), written input, p. 25.  

47   TI-France (2024). In March 2024, GRECO recommended to increase the transparency of lobbying with top 

executive officers. GRECO (2024b). 

7 

 
 
 
 
 
on  lobbying  presented  in  the  second  half  of  2023  remained  pending  in  Parliament48.  Even 
though rules on lobbying activities still do not apply to officials at top-executive level, 2023 
guidelines  are  being  implemented.  Therefore,  there  has  been  some  further  progress  on  the 
recommendation on rules of lobbying. 

New  ethics  measures  were  adopted  for  Members  of  Parliament,  Ministers  and  the 
Presidency  of  the  Republic  office,  and  increased  resources  are  used  to  check  political 
party financing. An ethics committee was created to advise the Presidency of the Republic 
office  and  its  staff,  a  specific  code  of  ethics  is  expected  to  be  approved  shortly49,  and  new 
measures  on  integrity  and  conflicts  of  interest  for  members  of  the  Government  and  elected 
officials  were passed by Parliament, while the implementing  regulations are  expected to  be 
approved  in  202550.  The  number  of  requests  from  members  of  Parliament  for  ethical 
counselling continued to increase51. Following the checks on the use of funding allocated to 
members of Parliament, a total of EUR 6 million was recovered52. The National Commission 
on Campaign Accounts and Political Financing (CNCCFP) increased its staff and reorganised 
its secretariat, allowing the Commission to better perform its duties, and check an increased 
number of political candidates53. An awareness-raising event on political party financing was 
organised in January 202554.  

Integrity  measures  for  police  officers  are  applied,  and  new  ethics  measures  for 
magistrates  were  adopted.  Integrity  measures  are  implemented:  in  2024,  the  general 
inspectorate for the national “gendarmerie” (IGGN) launched nine judicial investigations into 
corrupt practices concerning gendarmes, while the general inspectorate for the national police 
(IGPN)  launched  24  judicial  investigations  into  active  corruption  and  42  into  passive 
corruption concerning police officers55. Both the High Council for the Judiciary (CSM) and 
the  Constitutional  Council  adopted  their  respective  ethics  code56.  The  requests  for  ethical 
counselling  addressed  by  judges  to  their  ethics  support  service  (SAVD)  continued  to 
increase57.  

The  number  of  whistleblower  reports  continued  to  increase.  While  the  whistleblowing 
reports  received  by 
the  number  of 
whistleblowing  reports  received  by  the  Defender  of  Rights  (Defender)  doubled.  There  are 
plans  to  adopt  organisational  changes  in  order  to  better  cope  with  the  overall  increased 

the  Anti-Corruption  Agency  remained  stable, 

48   The  draft  laws  on  the  Transparency  of  interest  representation  (text  n.  834),  and  on  Digital  directory  of 
interest representatives (text n. 1577) were presented in July 2023 at the Senate and the National Assembly, 
respectively. HATVP (2025), written input, p.2. 

49   The deontology committee (which includes 3 members from the Council of State) will give its  opinion on 

the draft code of deontology. Country visit France, General Secretariat of the Government. 

50   Law No. 850 (2024). French Government (2025), written input, p.  23. Country visit France, Ethics Offices 

of the National Assembly and the Senate. 

51   Ethics office of the National Assembly (2024), and Ethics office of the Senate (2024). 
52   Country visit France, Ethics Offices of the National Assembly. 
53   CNCCFP hired 10 officers, and 4 administrative assistants. Country visit France, CNCCFP. 
54   Ibid. 
55   French Government (2025), written input, p. 31. 
56   Country visit  France,  CSM. The  Constitutional  council  appointed  an  ethics  officer.  Constitutional  Council 

(2025b), written input, p.11. 

57   In 2024, the SAVD received 121 requests, compared to 74 in 2022 and 112 in 2023. CSM (2025), written 

input, p. 2. 

8 

 
 
 
 
 
workload58. In 2024, the staff of the Defender continued to increase, and relies on a network 
of  about  670  regional  volunteers59.  The  whistleblowing  support  consortium  of  NGOs 
received 39 reports of corruption in 202460, and the Court of Audit receives whistleblowing 
reports through its online platform61. To further support reporting, a ministerial directive was 
issued  to  clarify  how  public  officials  should  report  suspicions  of  crimes,  including 
corruption62.  An  analytical  report 
issued  a  series  of  regulatory  and  operational 
recommendations  to  the  Government63.  The  Defender  organised  two  meetings  with  the  40 
competent authorities to support whistleblowers and is developing a common form for their 
annual  reporting64.  According  to  the  Defender,  there  continues  to  be  insufficient  public 
funding  to  provide  the  appropriate  protection  to  whistleblowers,  and  the  40  competent 
authorities demand qualified training to treat whistleblowers’ protection requests65.  

Initiatives are in preparation to combat corruption linked to organised drug trafficking 
and affecting ports. Businesses’ attitudes towards corruption in the EU shows  that 42% of 
companies  in  France  (EU  average  35%)  think  that  corruption  is  a  problem  when  doing 
business and 19% of companies (EU average 25%) think that corruption has prevented them 
from  winning  a  public  tender  or  a  public  procurement  contract  in  practice  in  the  last  three 
years66.  58%  of  companies  perceive  the  level  of  independence  of  the  public  procurement 
review  body  (the  regular  courts)  as  very  or  fairly  good67.  The  Single  Market  and 
Competitiveness Scoreboard on access to public procurement in France reports 23% of single 
bids for 2023 (EU average 29%). The draft law on the use of consulting companies for public 
policies, introduced to address concerns related to large public contracts, remains pending at 
the  Parliament68.  The  public  consultation  for  the  preparation  of  the  next  national 
anticorruption  plan  (2024-2027),  indicated  that  public  procurement,  urban  planning, 
construction,  health,  sport,  waste  treatment  and  defence  are  considered  by  respondents  as 
sectors  at  high  risk  of  corruption69.  A  law  to  combat  the  use  of  corruption  by  criminal 
organisations70 has been reviewed by the Constitutional Council71, and the AFA was tasked 

58   In  2024,  AFA  received  802  reports  (compared  to  435  for 2023),  with  whistleblower  status  assigned  in  60 
cases  (stable  compared  to  2023),  and  52  reports  dealing  with  corruption  were forwarded  to  the  competent 
investigative authorities. Country visit France, AFA. French Government (2025), written input, pp. 26-27. 
59   10  new  posts  were  created  last  year,  reaching  a  staff  of  260  agents  in  total.  French  Government  (2025), 
written  input,  p.  28.  The  Defender  is  developing  guidelines  for  the  volunteers.  Country  visit  France, 
Defender.  The  network  of  volunteers  continues  to  grow  of  about  +20  individuals  per  year.  Defender  of 
Rights (2025), p. 111. 

60   The  whistleblowers’  home  (La  maison  des  lanceurs  d’alerte),  in  combination  with  the  Centre  for  judicial 
support (in French CAJAC) offer support to potential whistleblowers. Country visit France, Anticor and TI-
France. 

61   Court of Audit (2024), p. 26. 
62   Ministry of Transformation and public service (2024). 
63   The 11 recommendations focused on: allocating the appropriate resources, as to guarantee the legal, financial 
and  psychological  support  to  whistleblowers;  harmonise  and  streamline  existing  rules,  sanctions  and 
procedures,  in  both  the  public  and  private  sectors,  for  either  internal  and  external  entities;  and  raise 
awareness. Defender of Rights (2024). 
64   Country visit France, Defender of Rights. 
65   Country visit France, Defender of Rights., TI-France and Anticor. Defender of Rights (2025), p. 111. 
66   Flash Eurobarometer 557 (2025). This is 6 percentage points below the EU average. 
67   Figure 59, 2025 EU Justice Scoreboard.  
68   Law (draft) No. 2688 (2024). NGOs remain attentive to the amendments introduced to this bill. TI-France 

(2025), written input, p. 15. 

69   AFA (2024g). 
70   Law  (draft)  No.  907  (2024).  While  the  action  against  corruption  and  drug  trafficking  was  welcome, 
stakeholders also advocated for the adoption of a specific roadmap, supported by appropriate resources, and 

9 

 
 
 
 
 
 
by  the  Government  to  develop  a  specific  interministerial  anticorruption  strategy  in  ports72. 
After a first analysis of convictions for corruption taken in 2021-2022, AFA is carrying out a 
second analysis for the period 2023-2024, which is expected to the published in 202573. 

III.  MEDIA PLURALISM AND MEDIA FREEDOM  

is  currently  preparing  for 

France’s media regulator, l’Autorité de régulation de la communication audiovisuelle et 
its 
numérique  (ARCOM),  has  undergone  significant  developments,  expanding 
regulatory  scope  and  activities  in  anticipation  of  new  obligations  and  mandates.  The 
authority 
the  European  Media  Freedom  Act  (EMFA) 
implementation and is working on a national media ownership database, although its formal 
mandate  for  this  remains  to  be  confirmed74.  Its  responsibilities  have  expanded  significantly 
under the Digital  Services  Act  (DSA), including  oversight  of online platforms75. Moreover, 
the Government is considering the designation of an authority, which could be ARCOM, to 
facilitate  negotiations  related  to  neighbouring  rights  between  online  platforms  and 
publishers76. ARCOM has also begun revising its methodology to broaden its assessment of 
pluralism following  decisions of the French Council of State77  and NGOs  remain vigilant78 
on  how  editorial  independence  is  being  implemented  in  line  with  the  ruling.  In  December 
2024,  ARCOM’s  decision  to  allocate  new  DTT  frequencies  -  excluding  two  outlets  -  was 
upheld  by  the  Council  of  State  as  lawful,  but  the  regulator  was  instructed  to  launch  a  new 
impact  assessment  and consultation  due to  the late withdrawal of  another outlet, which left 
four  frequencies  vacant79.  While  ARCOM’s  staff  increased  over  2022–2024  and  the 
employment ceiling has slightly decreased in the forecasts for 2025, the authority is assessing 
the  extra  needs  to  be  submitted  to  the  Government80.  The  2025  Media  Pluralism  Monitor 
(MPM)  reports  a  medium-high  risk  of  65%  for  market  plurality81,  equivalent  to  the  65% 
recorded in 2024. 

The proposed reform of public broadcasting governance and the creation of a holding 
company is the subject of debate and practical avenues for strengthening coordination 
among  public  broadcasters  are  being  sought.  Already  approved  in  a  first  reading  by  the 

use  of  proper  tools  (such  as  the  register  of  beneficial  ownership;  inter-agency  cooperation;  and 
whistleblowing). TI-France (2025), written input, pp. 8-9. 

71  Constitutional Council (2025c).  
72   The  strategy  should  involve  both  relevant  national  authorities  and  international  counterparts.  French 

Government (2025), written input, p. 20. 

73   AFA  (2024e).  AFA  considers  that  risk  of  corruption  is  particularly  strong  in  public  administration  at 

municipal level, health sector, large ports and penitentiary administrations. Country visit France, AFA. 

74   ARCOM (2025), written input, p.11 and second batch of written contribution from the French authorities, p. 

59. 

75   The  Law  No.  2024-449  of  21  May  2024  on  securing  and  regulating  the  digital  space  has  granted  new 

powers to ARCOM. 

76   The  French  Government  is  approaching  this  development with  caution,  given  the  legal framework  set  by 
the EU Directive on Copyright in the Digital Single Market and ongoing preliminary questions before the 
Court of Justice of the European Union (CJEU), as expressed in the second input of the Government, p. 59. 

77   French Council of State, Decisions Nos. 474473 and 472883, 31 May 2024. 
78   Country visit France, Conseil de déontologie journalistique et de médiation (CDJM) and Syndicat national 

des journalistes (SNJ).  

79  Conseil d’Etat (2025) public statement following the Decision n° 499823. 
80   Country visit France, ARCOM. 
81   2025 Media Pluralism Monitor, country report for France, p. 21. 

10 

 
 
 
 
 
Senate in 202382, the draft law proposes the creation of a holding company, France Médias, 
which  would  oversee  France  Télévisions,  Radio  France,  and  the  National  Audiovisual 
Institute (INA). The Government considers the reform as necessary to enable better pooling 
of  resources  and  shared  investments  through  the  future  holding  structure,  with  a  common 
CEO for the various subsidiaries83. The reform has triggered calls to strike in protest of the 
perceived  threat  to  editorial  autonomy  and  job  security.  In  an  attempt  to  ease  tensions  and 
build  consensus,  the  Minister  of  Culture  launched  an  initiative  in  March  2025  to  explore 
practical  avenues  for  strengthening  coordination  among  public  broadcasters  within  the  new 
governance framework. On the financial side, the French Parliament approved the reform of 
the public broadcasting funding, confirming the permanent shift to a mechanism based on a 
share  of  VAT  revenue  set  by  the  Parliament,  replacing  the  licence  fee84.  Besides  this,  the 
2025  public  service  media  budget  still  includes  cuts85.  Some  NGOs  consider  the  current 
funding model - based on a share of VAT - only as a temporary solution and call for a more 
stable,  sufficient,  and  predictable  system86.  The  2025  Media  Pluralism  Monitor  (MPM) 
reports  a  medium-low  risk  (36%)  for  the  independence  of  public  service  media87,  slightly 
lower than the 40% recorded in 2024. 

Significant  progress  was  made  to  improve  media  ownership  transparency,  with  the 
preparation  of  a  single  national  database88.  The  Government  aims  to  have  a  publicly 
accessible  database  listing  information  on  media  ownership  structures  -  specifically  the 
names of direct or indirect owners with influence over strategic or operational decisions, as 
well  as  the  ultimate  beneficial  owners.  These  measures  aim  to  improve  transparency  in 
complex  ownership  structures,  with  media  service  providers  also  required  to  make  such 
information  easily  and  directly  accessible,  for  example  on  their  websites89.  Discussions  are 
already  ongoing  both  within  ARCOM  and  at  the  Governmental  level,  and  a  transitional 
database,  bringing  together  information  on  services  currently  under  ARCOM's  jurisdiction, 
will  be made available to the public shortly90. Considering  the ongoing  development  of the 
media  ownership  database,  significant  progress  has  been  made 
in  addressing  the 
recommendation of the 2024 Rule of Law Report. 

Despite  strong  legal  guarantees  on  the  right  to  access  official  documents,  journalists 
report  challenges  in  practice.  While  the  legal  framework91  provides  a  right  to  access 
administrative documents, journalists and press ethics bodies report that the process is often 

82   The reform will be submitted to the Assembly for debate on 30 June 2025. This is the third attempt to pass 
the  reform,  it  was  first  abandoned  due  to  the  COVID-19  pandemic,  and  a  second  time  following  the 
dissolution of the National Assembly in June 2024.  

83   Country visit France, Government and Public service medias (Radio France and France Télévisions). 
84   Country visit France, the Government. 
85   Country visit France, Public service medias (Radio France and France Télévisions) 
86   As expressed during the country visit, RSF advocates a dual funding mechanism with a new tax on digital 
platforms  based  on  their  traffic  in  France,  and  a  universal,  progressive  household contribution  tailored  to 
media usage (not tied to TV ownership). 

87   2025 Media Pluralism Monitor, country report for France, p. 28. 
88   The 2024 Rule of Law Report had recommended France to ‘Step up efforts to improve the transparency of 
media ownership, in particular, complex shareholding structures, building on the existing legal safeguards”, 
Rule of Law report 2024, p. 2.  

89   French Government (2025), written input, p. 40. 
90   ARCOM (2025), written input, p.11. 
91   Law n°78-753 of 17  July 1978, Law  No. 2015-1779 of 28 December 2015 and Law  No. 2016-1321 of 7 

October 2016 (second batch, written contribution from the French authorities, p. 63).  

11 

 
 
 
 
 
cumbersome in practice92. In two recent decisions93, the French Council of State clarified that 
the  concept  of  ‘disproportionate  burden’  can  be  used  as  a  justification  for  refusal94. 
Journalists'  organisations  have  expressed  concerns  that  these  recent  developments  may 
introduce  an  additional  barrier.  French  authorities  insist  that  this  exception  is  narrowly 
applied, and efforts have been made to strengthen the Commission d’Accès aux Documents 
Administratifs (CADA)95. 

A legislative proposal, based on the outcome of a broad national consultation, is being 
prepared,  to  better  safeguard  the  right  to  information.  The  États  généraux  de 
l’information  (EGI),  a  broad  national  consultation  concluded  in  late  2024,  led  to  15 
recommendations - including on governance of news media, media pluralism in the context 
of  concentrations  and  media  literacy96.  A  legislative  proposal  based  on  these  outcomes  is 
expected  in  summer  202597.  NGOs  and  journalists’  associations  insist  on  the  legal 
recognition of editorial teams, tailored governance structures, and stronger safeguards against 
editorial  interference98,  particularly  considering  recent  cases  of  political  or  economic 
interference99.  Journalists’  unions  welcome  attempts  to  raise  awareness  of  journalistic  roles 
among police forces, notably through the implementation of the Schéma national du maintien 
de  l’ordre  (SNMO),  however,  they  have  also  pointed  the  persistent  occurrence  of  police 
violence  during  protests  and  criticized  the  incorrect  functioning  of  the  contact  group  on 
journalist  safety100.  Stakeholders  also  called  for  a  strengthening  of  the  protection  of 
sources101.  Meanwhile,  journalists’  associations  continue  to  raise  alarms  about  growing 
precariousness  in  the  profession  -  particularly  for  freelance  journalists.  In  this  context,  the 
draft  law  aimed  at  strengthening  the  effectiveness  of  ‘neighbouring  rights’  [related  to 
intellectual  property]  for  the  press102  is  seen  as  a  positive  step,  as  it  ensures  that  digital 
platforms fairly  compensate media outlets  for the use of their content103.  An amendment  to 
the bill sets a minimum of 25% of revenues from  these rights to be allocated to journalists. 
Although the bill was adopted by the Cultural Affairs Committee of the National Assembly in 
February  2025,  it  has  not  yet  been  put  on  the  agenda  of  the  plenary  session.   However, 
negotiations  between  platforms,  publishers,  and  journalists  remain  complex  and  sensitive, 
particularly regarding how revenues are calculated and redistributed. Since the 2024 Rule of 

92   Country visit France, Conseil de déontologie journalistique et de médiation (CDJM) and Syndicat national 

des journalistes (SNJ). 

93   French Council of State, Decisions Nos. 474473 and 472883, 31 May 2024. 
94   According to Article L.311-2 of the Code on Relations between the Public and the Administration, a request 
is  deemed  abusive  if  it  disrupts  the  administration's  functioning  or  imposes  a  disproportionate  burden 
relative to its resources (second batch, written contribution from the French authorities, p. 63). 
95   Country visit, French Government and French Government (2025), second written input, p.63. 
96   Restitution des EGI : https://etats-generaux-information.fr/la-restitution. 
97   Country visit France, the Government. 
98   Country visit France, CDJM and SNJ. 
99   During the country visit, NGOs and journalists’ organisations expressed that journalists in France continue 
to face mounting political and economic pressures, with cases such as 6 weeks-long strike at Le Journal du 
Dimanche, attempted dismissal of editors at La Provence, mass resignations at Marianne due to ownership 
shifts, or historical, prompting NGOs to call for stronger safeguards to protect newsroom independence. 
100   During the country visit, RSF, SNJ and CDJM expressed regrets that the Contact group - which is supposed 
to meet monthly - did not meet for nine months. Authorities cited the election period as the reason for the 
suspension  of  its  activity,  but  RSF  considers  this  justification  not  acceptable,  as  sensitive  public 
demonstrations took place during that time. The last meeting took place in February 2025. 

101   RSF  and  110  organisations  urged  the  Government  to  strengthen  source  protection  through  an  open  letter 

outlining five concrete proposals. RSF, 17 January 2025, https://rsf.org/fr/. 

102   Proposition de loi visant à renforcer l’effectivité des droits voisins de la presse, Assemblée Nationale. 
103   Country visit France, CDJM and SNJ. 

12 

 
 
 
 
 
Law  Report,  six  new  alerts  have  been  recorded  on  the  Council  of  Europe’s  Platform  to 
promote the protection of journalism and safety of journalists104. The Media Freedom Rapid 
Response  mechanism  has  identified  fifty  alerts.  These  alerts  include  online  harassment, 
physical attacks, legal pressures. 

IV.  OTHER INSTITUTIONAL ISSUES RELATED TO CHECKS AND BALANCES 

Legislative  simplification  efforts  are  welcomed  by  businesses  while  stakeholders  raise 
concerns regarding the consultation of citizens. Businesses105 have welcomed the draft law 
to  “simplify  the  economic  life”106.  This  draft  law  intervened  in  a  context  where  the 
perception, in particular by small and medium sized enterprises (SMEs), is that there is a high 
and increasing number of rules applying to them, sometimes at short notice, which would in 
their  view  lead  to  legal  uncertainties,  and  in  some  cases  to  sanctions,  if  the  law  is  not 
respected. They also refer to a lack of consultation of SMEs by public authorities107.  In 2024, 
an accelerated legislative procedure was used for 27 draft bills out of 39108. Business and bar 
associations  criticise  the  use  this  procedure,  as  it  contributes  to  legislative  instability109.  
However,  stakeholders110  have  raised  concerns  with  regard  to  the  proposed  removal  or 
reduction  in  scope  of  several  instances  to  consult  the  public.  The  application  Agora  put  in 
place in 2023 by the Government allows to consult citizens and for them to raise questions to 
the  Council  of  Ministers,  but  despite  a  promising  start111,  this  process  has  been  interrupted 
since  June  2024,  while  it  has  been  further  developed  to  also  allow  consulting  citizens  at 
regional and local levels112. 

Over half of the companies surveyed in France express confidence in the effectiveness of 
investment protection.  62% of companies are very or fairly confident that investments are 
protected by law and courts113. As regards authorities relevant for economic operators, 62% 
perceive the level of independence of the national competition authority (French Competition 
Authority)  as  very  or  fairly  good114.  A  number  of  judicial  mechanisms  are  in  place  at  the 
level of the Council of State to ensure the implementation of administrative court judgments, 
including issuing injunctions and penalty payments, the possibility to substitute the annulled 
administrative act and to award direct and consequential damages and compensation115. 

104   Out of six alerts, France has so far replied to five. 
105   Country visit France, business associations:  Confederation of SMEs (CPME); Commerce and Distribution 

Federation (FCD) and Federation of French Enterprises and Entrepreneurs (FEEF). 

106   Draft  Law  n°550  on  the  simplification  of  economic  life,  adopted  by  the  National  Assembly  on  17  June 

2025. 

107   Country visit France, business associations. 
108   In  addition,  the  Article  49-3  of  the  Constitution  was  used  once,  which  led  the  Parliament  to  censor  the 
Government.  French  Government  (2025),  written  input,  p.  46.  On  Article  49-3,  see  also  the 
recommendations of the Venice Commission opinion (CDL(2025)025), adopted on 14 June 2025. 
109   Country visit France, business and bar associations. Bar associations (2025), written input, p. 16. 
110   Trade  unions  (CGT,  FO,  CFE-CGC,  CFTC,  UNSA,  Solidaires),  CNCDH,  Defender  of  Rights,  CSOs 

(including the Network for Climate Action, Foundation for Nature and Humans), Localtis. 

111   2024 Rule of Law Report, France. 
112   French Government (2025), additional written input, p. 1. 
113   Figure  54,  2025  EU  Justice  Scoreboard.  As  main  reason  for  lack  of  confidence,  businesses  mention 
difficulties in enforcing rights in court due to concerns about quality, efficiency or independence of justice. 

114   Figure 60, 2025 EU Justice Scoreboard. 
115   Figure 49, 2025 EU Justice Scoreboard. The data presented reflects exclusively the mechanisms in place at 
the level of the highest administrative jurisdictions; the same or other mechanisms may be in place at lower 
instance administrative courts. 

13 

 
 
 
 
 
On 1 January 2025, France had 26 leading judgments of the European Court of Human 
Rights  pending  implementation,  an  increase  of  6  compared  to  the previous  year116.  At 
that  time,  France’s  rate  of  leading  judgments  from  the  past  10  years  that  had  been 
implemented  was  at  66%  (compared  to  71%  in  2024;  34%  remained  pending),  and  the 
average time that the judgments had been pending implementation was 3 years (compared to 
3 years and 10 months in 2024)117. The oldest leading judgment, pending implementation for 
15  years,  concerns  the  inaction  of  the  authorities  in  the  execution  of  judiciary  measures  of 
expulsion regarding illegally occupied lands118. As regards the respect of payment deadlines, 
on  31  December  2024  there  were  9  cases  in  total  awaiting  confirmation  of  payments 
(compared  to  8  in  2023)119.  On  16  June  2025,  the  number  of  leading  judgments  pending 
implementation had decreased to 22120. In an opinion of 26 September 2024121, the National 
Consultative  Commission  on  Human  Rights  (CNCDH)  recalled  the  obligation  of  public 
authorities to implement all decisions of the ECtHR.  

Discussions  are  ongoing  on  the  safeguards  to  be  put  in  place  when  using  artificial 
intelligence in the justice system. Studies have been launched by the Government in 2024 
and  2025,  to  determine  where  its  use  by  the  justice  system  would  be  most  relevant  and 
offering  best  guarantees  in  terms  of  cybersecurity  and  citizens’  rights122.  The  Court  of 
Cassation submitted a report to the Government on 28 April 2025 on the possible use by this 
Court of artificial intelligence, for example for tasks of little value added123. The Defender of 
Rights has made recommendations on the use of artificial intelligence in drafting individual 
administrative decisions124.  

The  financial  environment  of  civil  society  organisations  remains  favourable  despite 
budgetary  restrictions.  The  civic  space  is  considered  as  narrowed125.  A  report  from  the 
Government  analysing  the  impact  of  the  reduction  in  funding  to  associations  is  due  in 
2025126. The National Consultative Commission on Human Rights  (CNCDH) still lacks the 
means to effectively carry out the full extent of its mandate127. There were less administrative 
dissolutions  or  funds  withdrawals  of  CSOs  on  the  basis  of  a  violation  of  the  Republican 
Engagement  Contract  in  2024128.  A  Decree  of  5  July  2024129  digitalises  and  simplifies 
procedures  for  CSOs  and  citizens  while  allowing  for  a  reinforced  control  of  applicable 
legislation,  in  particular  with  regard  to  financial  transparency  and  respect  of  the  general 

116   For an explanation of the supervision process, see the website of the Council of Europe.   
117   All figures calculated by the European Implementation Network (EIN) and based on the  number of cases 
that are considered pending at the annual cut-off date of 1 January 2025. EIN (2025), written input, p. 4. 
118   Judgment of the ECtHR, 13829/03, Barret and Sirjean v. France, pending implementation since 2007.  
119   Council of Europe (2025), p. 156.   
120   Data according to the online database of the Council of Europe (HUDOC). 
121   CNCDH (2025). 
122   French Government (2025), written input, p. 14. 
123   Court of Cassation (2025), ‘Cour de cassation et intelligence artificielle : préparer la Cour de Cassation de 

demain’. 

124   Defender of Rights, Report of November 2024. 
125   Rating by CIVICUS; ratings are on a five-category scale defined as: open, narrowed, obstructed, repressed 

and closed. 

126   As provided for in Law No. 2024-344 supporting voluntary work and simplifying associative life. 
127   ENNHRI (2025), Final report, p. 145. 
128   French Government (2025), second written input, p. 8. European Civic Forum (2025), written input, pp. 14-
16. Country visit to France, Government and CSOs. In comparison with 2024 Rule of Law Report, pp. 21-
22. 

129   Decree 2024-720. French Government (2025), written input, p. 54. 

14 

 
 
 
 
 
interest. CSOs, the ENNHRI  and the CNCDH  continue to  report about  practices that  could 
negatively impact on civil society space and/or reduce human rights defenders’ activities, like 
intimidations,  attacks,  including  online,  negative  attitudes  campaigns  towards/perception  of 
civil  society  and/or  human  rights  defenders,  their  work  and  environment130.  The  CNCDH 
recommended  the  adoption  of  legislative  measures  to  protect  human  rights  defenders. 
However,  it  reported  to  the  ENNHRI  that  no  legislation,  state  measures  or  practices  have 
been  put 
its 
recommendations131. 

timely  and  reasoned  response 

in  place  since  2022 

to  ensure 

to 

130   European  Civic  Forum  (2025),  written  input,  p.  6.  Country  visit  France,  CNCDH,  Defender  of  Rights, 

CSOs. ENNHRI (2025), Final report, p. 149. 

131   ENNHRI (2025), Final report, p. 145. 

15 

 
 
 
 
 
 
 
Annex I: List of sources in alphabetical order* 

* The list of contributions received in the context of the consultation for the 2024 Rule of Law report 
can  be  found  https://commission.europa.eu/publications/2025-rule-law-report-targeted-stakeholder-
consultation_en. 

AFA  (2024a)  Practical  guide  for  public  health  establishments,  https://www.agence-francaise-
anticorruption.gouv.fr/files/files/GuideEtabPublicSante_AFA_Web.pdf;  

AFA  (2024b)  Details  on  the  practical  approach  to  anti-corruption  indicators,  https://www.agence-
francaise-anticorruption.gouv.fr/fr/entreprise-assujettie-directive-csrd-details-sur-lapproche-pratique-
des-indicateurs-anticorruption;  

AFA  (2024c),  Implementation  and  continuous  improvement  of  an  anti-corruption  program, 
https://evenium.events/cycle-anti-corruption/;  

AFA (2024d), Practical guide for local elected representatives to better manage the risks on probity; 
https://www.agence-francaise-anticorruption.gouv.fr/fr/guides-et-fiches-pratiques  

AFA (2024e), First instance court decisions on breaches of probity 2021-2022, https://www.agence-
francaise-anticorruption.gouv.fr/fr/guides-et-fiches-pratiques  

AFA  (2024f),  National  survey  of  anti-corruption  programmes  in  companies,  https://www.agence-
francaise-
anticorruption.gouv.fr/files/Diagnostic%20national%202024%20ENG_CF.MV%20(002)_0.pdf 

AFA 
anticorruption.gouv.fr/files/files/RA_2023_AFA_Web.pdf  

(2024g), 

Activity 

Annual 

Report, 

https://www.agence-francaise-

AFA  (2024h),  The  new  organization  of  the  French  Anti-Corruption  Agency,  https://www.agence-
francaise-anticorruption.gouv.fr/fr/nouvelle-organisation-lagence-francaise-anticorruption  

Anticor  (2025),  Fighting  for  the  public  interest  should  not  cost  whistleblowers  their  lives, 
https://www.anticor.org/2025/03/18/un-agriculteur-corse-abattu-sur-son-exploitation-combattre-pour-
linteret-general-ne-devrait-pas-couter-la-vie-aux-lanceurs-dalerte/  

Anticor (2025), Contribution from Anticor for the 2025 Rule of Law Report. 

ARCOM (2025), Contribution from ARCOM for the 2025 Rule of Law Report. 

Chief National Financial Prosecutor (2025), interview, https://www.tribunal-de-
paris.justice.fr/sites/default/files/2025-01/Discours%20rentr%C3%A9e%20solennelle%202025%20-
%2021.1.25%20VD%20PRESSE.pdf   

Civicus, Monitor tracking civic space – France,  https://monitor.civicus.org/country/france/ 

Civil  Liberties  Union 
https://www.liberties.eu/en/stories/rolreport2025-main/45330  

for  Europe 

(2025),  The  Liberties  Rule  of  Law  Report, 

Conseil Supérieur de la Magistrature (2025), Press release on the Defence of the independence of the 
judicial authority following the reactions to the decision issued by the Tribunal of Paris on 31 March 
2025. 

Constitutional Council (2025b), - Contribution from the Constitutional Council for the 2025 Rule of 
Law report. 

16 

 
 
 
 
Constitutional  Council 
constitutionnel.fr/decision/2025/2025885DC.htm.  

(2025c),  Decision  No. 

2025-885  DC, 

https://www.conseil-

Council of Europe: Committee of Ministers (2024), Annual Report on the Supervision of the execution 
of judgments and decisions of the European Court of Human Rights. 

Council of Europe (2025), Contribution from the Council of Europe for the 2025 Rule of Law Report. 

Council  of  Europe,  Platform  to  promote  the  protection  of  journalism  and  safety  of  journalists  – 
France. 

Council of Europe: Venice Commission (2025), France – Final Opinion  on Article 49-3 of 
the  Constitution,  adopted  by  the  Venice  Commission  at  its  143rd  Plenary  Session  (CDL-
AD(2025)025). 

Council of European Bars (CCBE) (2025),  Contribution from the Council of European Bars for the 
2025 Rule of Law Report. 

Court of Audit (2024), Activity Report for 2023. 

Court of Cassation (2025), Contribution from the Court of Cassation for the 2025 Rule of Law Report. 

Court  of  Cassation  (2025),  ‘Cour  de  cassation  et  intelligence  artificielle  :  préparer  la  Cour  de 
Cassation de demain’. 

Defender of Rights (2024), The protection of whistleblowers in France - Biennial report 2022-2023,  

Defender of Rights (2025), Annual activity report for 2024.  

Directorate-General  for  Communication  (2025),  Flash  Eurobarometer  557  on  Businesses’  attitudes 
towards corruption in the EU. 

Directorate-General  for  Communication  (2025),  Special  Eurobarometer  561  on  Citizens’  attitudes 
towards corruption in the EU. 

ENNHRI (2025), State of the Rule of Law in Europe. 

European Civic Forum (2024), Civic Space Report.  

European Civic Forum (2025), Contribution of the European Civic Forum for the 2025 Rule of Law 
Report. 

European Commission (2025), Country report France, SWD(2025) 210 final. 

European Commission (2025), Special Eurobarometer 561– Citizens’ attitudes towards corruption in 
the EU.  

European Commission (2025), Flash Eurobarometer 557– Businesses’ attitudes towards corruption in 
the EU. 

European Commission (2025), EU Justice Scoreboard. 

European Commission (2024), 2024 Rule of Law Report, Country Chapter on the rule of law situation 
in France. 

17 

 
 
 
 
European  Network  of  Councils  of  the  Judiciary  (2025),  Contribution  from  the  ENCJ  for  the  2025 
European Commission Rule of Law Report. 

EPPO (2025), Annual Report 2024. 

Ethics  office  of  the  National  Assembly  (2024),  Annual  activity  report,  https://www2.assemblee-
nationale.fr/content/download/825960/7862454/version/1/file/rapport_deontologue-2023.pdf 

the  Senate 

Ethics  office  of 
https://www.senat.fr/fileadmin/cru-
1742890008/Organisation_interne/Comite_de_deontologie/Rapports_d_activite/Rapport_d_activite_2
022-2023.pdf  

(2024),  Annual  activity 

the  years  2022-2023, 

report 

for 

Fédération  du  Commerce  et  de  la  Distribution  (2025),  Contribution  from  the  Fédération  du 
Commerce et de la Distribution for the 2025 Rule of Law Report. 

French Government (2025), Input from France for the 2025 Rule of Law Report. 

French Bars (2025), Contribution of the French Bars for the 2025 Rule of Law Report. 

Fundamental Rights Agency (2025), Report on the Civic Space 2024. 

Government 
https://www.modernisation.gouv.fr/files/2024-03/Plan_Action_National_2024_2026_0.pdf  

(2024),  National  Open  Government  action  plan 

for  France  2024-2026, 

GRECO  (2024a),  Second  Addendum  to  the  Second  Compliance  Report  of  the  Fourth  Evaluation 
Round,  https://rm.coe.int/second-addendum-to-the-second-compliance-report-france-4th-evaluation-
/1680ae51d2  

GRECO (2024b), Second Compliance Report of the Fifth Evaluation Round, https://rm.coe.int/fifth-
evaluation-round-preventing-corruption-and-promoting-integrity-i/1680af36e8 

HATVP  (2023),  Guidelines  on  registry  of  representatives,  https://www.hatvp.fr/wordpress/wp-
content/uploads/2023/09/Lignes-directrices_nouvelles-version_entree-en-vigueur-au-
01102023_VF.pdf  

HATVP (2025), Contribution from the HATVP for the 2025 Rule of Law report. 

Hub  Culturel  Européen (2025),  Contribution from  the  Hub  Culturel  Européen  for  the  2025  Rule  of 
Law report. 

Human  Rights  Watch  (2025),  Contribution  from  Human  Rights  Watch  for  the  2025  Rule  of  Law 
report. 

International  Press  Institute  and  Media  and  Journalism  Research  Centre  (2024),  Media  capture 
monitoring report: France. 

Law  No.  22 
(2023),  Orientation  and  programming  of 
https://www.legifrance.gouv.fr/jorf/id/JORFTEXT000047046768  

the  Ministry  of 

the 

Interior, 

Law  Warsmann  No.  582  (2024),  Improving  the  effectiveness  of  systems  for  the  seizure  and 
confiscation of criminal assets, https://www.legifrance.gouv.fr/jorf/id/JORFTEXT000049775573Law 
France, 
preventing 
No. 
https://www.legifrance.gouv.fr/jorf/id/JORFTEXT000050052193  

interference 

(2024), 

foreign 

Aimed 

850 

in 

at 

18 

 
 
 
 
Law  (draft)  No.  907  (2024),  aimed  at  freeing  France  from  the  trap  of  drug  trafficking, 
https://www.assemblee-nationale.fr/dyn/17/textes/l17b0907_proposition-loi   

Law  (draft)  No.  2688  (2024),  on  Supervising  the  intervention  of  private  consulting  firms  in  public 
policies, https://www.assemblee-nationale.fr/dyn/16/textes/l16b2688_proposition-loi  

(draft)  No.  834 

Law 
https://www.senat.fr/leg/ppl22-834.html  

(2022-2023),  Transparency  of 

the 

representation  of 

interests, 

Law  (draft)  No.  1577  (2023),  Digital  directory  of  interest  representatives,  https://www.assemblee-
nationale.fr/dyn/16/textes/l16b1577_proposition-loi  

League  of  Human  Rights  (Ligue  des  Droits  de  l’Homme)  (2025),  Contribution  from  the  League  of 
Human Rights for the 2025 Rule of Law Report. 

Liberties (2025), Rule of Law Report. 

Magistracy’s Union (Syndicat de la Magistrature), Contribution from the Magistracy’s Union for the 
2025 Rule of Law Report. 

Magistrates’ Union (Union Syndicale des Magistrats), Contribution from the Magistrates’ Union for 
the 2025 Rule of Law Report. 

Ministry  of  Transformation  and  public 
June  2024, 
https://www.legifrance.gouv.fr/circulaire/id/45566?page=1&pageSize=25&query=*&searchField=AL
L&searchType=ALL&sortValue=SIGNATURE_DATE_DESC&tab_selection=circ&typePagination
=DEFAULT  

(2024),  Circular  of  26 

service 

National  Informatics  and  Freedom  Commission  (CNIL)  (2024),  Algorithmic  Cameras  in  Public 
Space, 18 November 2024, https://www.cnil.fr/fr/cameras-augmentees-espaces-publics  

Network of the Presidents of the Supreme Judicial Courts of the European Union (2025), Contribution 
of the Network of the Presidents of the Supreme Judicial Courts of the European Union for the 2025 
Rule of Law Report. 

OECD 
https://one.oecd.org/document/DAF/WGB(2024)20/en/pdf 

(2024), 

Phase 

4 

Evaluation 

of 

France, 

Prime Minister (2024), Order approving the Anticor association for the exercise of the rights of the 
civil party, http://legifrance.gouv.fr/jorf/id/JORFTEXT000050185140  

Reporters without Borders (2025), Contribution from Reporters without Borders for the 2025 Rule of 
Law Report. 

Transparency International France (2025), Contribution from Transparency International France for 
the 2025 Rule of Law Report. 

(2024), 

TI-France 
france.org/2024/10/15/transparency-international-france-inquiete-des-consequences-en-matiere-de-
transparence-de-la-vie-publique-de-la-decision-du-conseil-detat-dans-laffaire-institut-mont/  

Transparency 

International 

https://transparency-

France 

Superior Council of the Magistracy (2025), Contribution of the Superior Council of the Magistracy 

Transparency International (2025), Corruption Perceptions Index 2024. 

19 

 
 
 
 
Transparency  International  France  (2025),  Contribution  from  Transparency  International  France  for  the  2025 

Rule of Law Report. 

UNDP/UNODC 
(2012),  Jakarta  Statement  on  Principles 
https://www.unodc.org/documents/corruption/WG-Prevention/Art_6_Preventive_anti-
corruption_bodies/JAKARTA_STATEMENT_en.pdf  

for  Anti-Corruption  Agencies, 

UNDP/UNODC  (2020),  Colombo  commentary  on  the  Jakarta  Statement  on  Principles  for  Anti-
Corruption 
https://www.unodc.org/documents/corruption/Publications/2020/20-
Agencies, 
00107_Colombo_Commentary_Ebook.pdf  

United  Nations  Human  Rights,  Regional  Office  Europe  (2025),  Contribution  from  United  Nations 
Human Rights, Regional Office Europe for the 2025 Rule of Law Report. 

20 

 
 
 
 
Annex II: Country visit to France 

The Commission services held virtual meetings in March 2025 with: 

•  Agence France Press 
•  Associative Movement  
•  Anticor 
•  Authority for the regulation of the audiovisual and digital communication (ARCOM) 
•  Commerce and Distribution Federation (FCD) 
•  Confederation of SMEs (CPME) 
•  Constitutional Council 
•  Council of State 
•  Defender of Rigths 
•  Deontologist of the National Assembly 
•  Ethics Committee of the Senate 
•  European Civic Forum 
•  Federation of French Entreprises and Entrepreneurs (FEEF) 
•  Journalistic Ethics and Mediation Council (CDJM) 
•  League of Human Rights (LDH) 
•  Magistracy’s Union (SM) 
•  Magistrates’ Union (USM) 
•  National Advisory Committee on Human Rights (CNCDH) 
•  National  Bar  Council,  Delegation  of  French  Bars,  Paris  Bar  and  Conference  of 

Batonniers 

•  National Commission for Campaign Accounts and Political Funding (CNCCFP) 
•  National Union of Journalists (SNJ) 
•  Public  authorities:  Secretariat-General  for  European  Affairs,  Ministry  of  Justice, 
Ministry of Interior, Ministry of European and Foreign Affairs, Ministry for Culture, 
Ministry  of  Sports,  Youth  and  Associative  Life,  Secretariat-General  of  the 
Government, 
for  Public  Transformation,  French 
Representation to the EU, French Agency against Corruption. 

Interministerial  Direction 

•  Public Service Media (TV and Radio) 
•  Regulatory Authority for Audiovisual and Digital Communication (ARCOM) 
•  Reporters Without Borders (RSF) 
•  Superior Council of the Magistracy 
•  Transparency International France 

* The Commission also met the following organisations in a number of horizontal meetings:  

•  Amnesty International  
•  Araminta  
•  Civil Liberties Union for Europe   
•  Civil Society Europe   
•  European Civic Forum   

21 

 
 
 
 
 
International Commission of Jurists   
International Federation for Human Rights (FIDH)  

•  European Partnership for Democracy  
•  European Youth Forum,  
• 
• 
•  JEF Europe  
•  Philea – Philanthropy Europe Association.  
•  Transparency International   

22