(4)Taking account of the rapidly changing economic and geopolitical situation, the European Semester resumes its broad economic and employment policy coordination in 2022, while evolving in line with the implementation requirements of the Recovery and Resilience Facility, as outlined in the 2022 Annual Sustainable Growth Survey. The implementation of the adopted recovery and resilience plans is essential for the delivery of the policy priorities under the European Semester, as the plans address all or a significant subset of the relevant country-specific recommendations issued in the 2019 and 2020 Semester cycles. The 2019 and 2020 country-specific recommendations remain equally relevant also for recovery and resilience plans revised, updated or amended in accordance with Articles 14, 18 and 21 of Regulation (EU) 2021/241, in addition to any country-specific recommendations issued up to the date of submission of the modified plan.

(3)Russia’s invasion of Ukraine, in the wake of the global pandemic, has significantly altered the geopolitical and economic context. The impact of the invasion on Member States’ economies has been felt for example through higher energy and food prices and weaker growth prospects. The higher energy prices weigh particularly on the most vulnerable households experiencing or at risk of energy poverty. The EU is also seeing an unprecedented inflow of people fleeing Ukraine. In this context, on 4 March 2022, the Temporary Protection Directive was triggered for the first time, granting displaced persons from Ukraine the right to legally stay in the EU, as well as access to education and training, labour market, healthcare, housing and social welfare.

(2)On 24 November 2021, the Commission adopted the Annual Sustainable Growth Survey, marking the start of the 2022 European Semester for economic policy coordination. It took due account of the reaffirmed joint commitment of the Porto Social Summit of May 2021 to further implement the European Pillar of Social Rights, proclaimed by the European Parliament, the Council and the Commission on 17 November 2017. The European Council endorsed the priorities of the 2022 Annual Sustainable Growth Survey on 25 March 2022. On 24 November 2021, on the basis of Regulation (EU) No 1176/2011, the Commission also adopted the Alert Mechanism Report, in which it identified Greece as one of the Member States for which an in-depth review would be needed. On the same date, the Commission also adopted a recommendation for a Council recommendation on the economic policy of the euro area, which was adopted on 5 April 2022 by the Council, as well as the proposal for the 2022 Joint Employment Report analysing the implementation of the Employment Guidelines and the principles of the European Pillar of Social Rights, which was adopted by the Council on 14 March 2022.

(1)Regulation (EU) 2021/241 of the European Parliament and of the Council, which established the Recovery and Resilience Facility, entered into force on 19 February 2021. The Recovery and Resilience Facility provides financial support for the implementation of reforms and investment, entailing a fiscal impulse financed by the Union. It contributes to the economic recovery and to the implementation of sustainable and growth-enhancing reforms and investment, in particular to promote the green and digital transition, while strengthening the resilience and potential growth of the Member States’ economies. It also helps strengthen sustainable public finances and boost growth and job creation in the medium and long term. The maximum financial contribution per Member State under the Recovery and Resilience Facility [was] updated on [XX] June 2022, in line with Article 11(2) of Regulation (EU) 2021/241.

(5)The General Escape Clause has been active since March 2020. In its Communication of 3 March 2021, the Commission set out its view that the decision on the deactivation or continued application of the general escape clause should be taken as an overall assessment of the state of the economy, with the level of economic activity in the EU or euro area compared to pre-crisis levels (end-2019) as a key quantitative criterion. Heightened uncertainty and strong downside risks to the economic outlook in the context of war in Europe, unprecedented energy price hikes and continued supply chain disturbances warrant the extension of the general escape clause of the Stability and Growth Pact through 2023.

(6)Following the approach in the Council opinion of 18 June 2021 on the 2021 Stability Programme, the fiscal stance is currently best measured as the change in primary expenditure (net of discretionary revenue measures), excluding COVID-19 crisis-related temporary emergency measures but including expenditure financed by non-repayable support (grants) from the Recovery and Resilience Facility and other EU funds, relative to medium-term potential growth. Going beyond the overall fiscal stance, in order to assess whether national fiscal policy is prudent and its composition is conducive to a sustainable recovery consistent with the green and digital transitions, attention is also paid to the evolution of nationally-financed primary current expenditure (net of discretionary revenue measures and excluding COVID-19 crisis-related temporary emergency measures) and investment.

(7)On 2 March 2022, the Commission adopted a Communication providing broad guidance for fiscal policy in 2023, aiming at supporting the preparation of Member States’ Stability and Convergence Programmes and thereby strengthening policy coordination. The Commission noted that, based on the macroeconomic outlook of the 2022 winter forecast, transitioning from an aggregate supportive fiscal stance in 2020-2022 to a broadly neutral aggregate fiscal stance would appear appropriate in 2023, while standing ready to react to the evolving economic situation. The Commission announced that the fiscal recommendations for 2023 should continue to differentiate across Member States and take into account possible cross-country spillovers. The Commission invited the Member States to reflect the guidance in their Stability and Convergence Programmes. The Commission committed to closely monitor the economic developments and adjust its policy guidance as needed and at the latest in its Semester spring package of late May 2022.

(8)With respect to the fiscal guidance provided on 2 March 2022, the fiscal recommendations for 2023 take into account the worsened economic outlook, the heightened uncertainty and further downside risks, and the higher inflation compared to the winter forecast. Against these considerations, the fiscal response has to expand public investment for the green and digital transition and energy security, and sustain the purchasing power of the most vulnerable households so as to cushion the impact of the energy price hike and help limit inflationary pressures from second round effects via targeted and temporary measures; fiscal policy has to remain agile so as to adjust to the rapidly evolving circumstances, and be differentiated across countries depending on their fiscal and economic situation, including as regards the exposure to the crisis and the inflow of displaced persons from Ukraine.

(9)On 27 April 2021, Greece submitted its national recovery and resilience plan to the Commission, in accordance with Article 18(1) of Regulation (EU) 2021/241. Pursuant to Article 19 of Regulation (EU) 2021/241, the Commission assessed the relevance, effectiveness, efficiency and coherence of the recovery and resilience plan, in accordance with the assessment guidelines of Annex V to that Regulation. On 6 July 2021, the Council adopted its Decision on the approval of the assessment of the recovery and resilience plan for Greece. The release of instalments is conditional on a decision by the Commission, taken in accordance with Article 24(5) of Regulation (EU) 2021/241, that Greece has satisfactorily fulfilled the relevant milestones and targets set out in the Council Implementing Decision. Satisfactory fulfilment presupposes that the achievement of preceding milestones and targets has not been reversed.

(10)On 30 April 2022, Greece submitted its 2022 National Reform Programme and, on 29 April 2022, its 2022 Stability Programme, in line with Article 4 of Regulation (EC) No 1466/97. To take account of their interlinkages, the two programmes have been assessed together. In accordance with Article 27 of Regulation (EU) 2021/241, the 2022 National Reform Programme also reflects Greece’s bi-annual reporting on the progress made in achieving its recovery and resilience plan.

(11)The Commission published the 2022 country report for Greece on 23 May 2022. It assessed Greece’s progress in addressing the relevant country-specific recommendations adopted by the Council in 2019, 2020 and 2021, and took stock of Greece’s implementation of the recovery and resilience plan, building on the Recovery and Resilience Scoreboard. Based on this analysis, the country report identified gaps with respect to those challenges that are not addressed or only partially addressed by the recovery and resilience plan, as well as new and emerging challenges, including those emerging from Russia’s invasion of Ukraine. It also assessed Greece’s progress on implementing the European Pillar of Social Rights and on achieving the EU headline targets on employment, skills and poverty reduction, as well as progress in achieving the UN’s Sustainable Development Goals.

(12)The Commission carried out an in-depth review under Article 5 of Regulation (EU) No 1176/2011 for Greece and published its results on 23 May 2022. The Commission concluded that Greece is experiencing macroeconomic imbalances. Vulnerabilities relate to high government debt, incomplete external rebalancing and high non-performing loans in a context of low potential growth and high unemployment.

(13)On 23 May 2022, the Commission issued a report under Article 126(3) TFEU. This report discussed the budgetary situation of Greece, as its general government deficit in 2021 exceeded the 3% of GDP Treaty reference value. The report concluded that the deficit criterion was not fulfilled. In line with the Communication of 2 March 2022, the Commission did not propose to open new excessive deficit procedures in spring 2022 and it will reassess the relevance of proposing to open excessive deficit procedures in autumn 2022.

(14)On 20 July 2020, the Council recommended Greece to take in 2020 and 2021 all necessary measures, in line with the general escape clause, to effectively address the pandemic, sustain the economy and support the ensuing recovery. It also recommended Greece to pursue, when economic conditions allow, fiscal policies aimed at achieving prudent medium-term fiscal positions and ensuring debt sustainability, while enhancing investment. In 2021, based on data validated by Eurostat, Greece’s general government deficit fell from 10.2% of GDP in 2020 to 7.4% in 2021. The fiscal policy response by Greece supported the economic recovery in 2021, while temporary emergency support measures declined from 7.6% of GDP in 2020 to 7.2% in 2021. The measures taken by Greece in 2021 have been in line with the Council Recommendation of 20 July 2020. The discretionary budgetary measures adopted by the government in 2020 and 2021 were temporary or matched by offsetting measures. Based on data validated by Eurostat, general government debt stood at 193.3% of GDP in 2021.

(15)The macroeconomic scenario underpinning the budgetary projections in the 2022 Stability Programme is realistic for 2022 and favourable for 2023. The 2022 Stability Programme projects real GDP to grow by 3.1% in 2022 and 4.8% in 2023. By comparison, the Commission’s 2022 spring forecast projects higher real GDP growth of 3.5% in 2022 and lower real GDP growth of 3.1% in 2023. The difference between the forecasts is mainly driven by the different assumptions on the pace of absorption of EU funds as well as on the impact of the military aggression, notably on private consumption. In its 2022 Stability Programme, the Government expects that the headline deficit will decrease to 4.4% of GDP in 2022 and to 1.4 % in 2023. The decrease in 2022 mainly reflects the ongoing recovery in economic activity and the unwinding of most emergency measures. According to the Programme, the general government debt-to-GDP ratio is expected to decrease strongly to 180.2% in 2022, and to decline to 168.6% in 2023. Based on policy measures known at the cut-off date of the forecast, the Commission 2022 spring forecast projects a government deficit for 2022 and 2023 of 4.3% of GDP and 1.0% respectively. This is broadly in line with the deficit projected in the 2022 Stability Programme. Notwithstanding the difference in real GDP growth, the Commission 2022 spring forecast assumes more dynamic price and wage growth for both 2022 and 2023, thereby projecting higher revenues from personal income. The Commission 2022 spring forecast projects a higher general government debt-to-GDP ratio, of 185.7% in 2022 and 180.4% in 2023. The difference is due to different estimation of differences between cash and accrual fiscal balances as well as different assumption on net accumulation of financial assets.

Based on the Commission spring 2022 forecast, the current estimate of the medium-term (10-year-average) potential output growth is -0.3%. However, this estimate does not include the impact of the reforms that are part of the Recovery and Resilience Plan and can boost Greece’s potential growth.

(16)In 2022, the government phased out the majority of measures taken in response to the COVID-19 crisis, such that the temporary emergency support measures are projected to decline from 7.2% of GDP in 2021 to 1.8% in 2022. The government deficit is impacted by the measures adopted to counter the economic and social impact of the increase in energy prices, which in the Commission 2022 spring forecast are estimated at 1.1% of GDP in 2022 and no fiscal impact in 2023 as they are planned to be phased out. This impact on the deficit is partially offset by higher revenues from the emission allowances. These measures mainly consist of subsidies to energy users, social transfers to poorer households and cuts to indirect taxes on transport services. These measures have initially been announced as temporary. Following the submission of Greece’s Stability Programme and the cut-off date of the Commission 2022 spring forecast, the government announced a new package of measures for 2022, which aim to address the consequences of increased energy prices. In case energy prices remain elevated also in 2023, some of these measures could be continued. The government deficit is also impacted by the costs to offer temporary protection to displaced persons from Ukraine, which in the Commission 2022 spring forecast are projected at 0.1% of GDP in 2022 and 0.1% in 2023.

(17)On 18 June 2021, the Council recommended that in 2022 Greece should use the Recovery and Resilience Facility to finance additional investment in support of the recovery while pursuing a prudent fiscal policy. Moreover, it should preserve nationally financed investment. It also recommended Greece to pursue, when economic conditions allow, a fiscal policy aimed at achieving prudent medium-term fiscal positions and ensuring fiscal sustainability in the medium term, and at the same time, to enhance investment to boost growth potential.

(18)In 2022, based on the Commission’s 2022 spring forecast and including the information incorporated in Greece’s 2022 Stability Programme, the fiscal stance is projected to be supportive at –3.3% of GDP. Greece plans to provide continued support to the recovery by making use of the Recovery and Resilience Facility to finance additional investment as recommended by the Council. The positive contribution to economic activity of expenditure financed by Recovery and Resilience Facility grants and other EU funds is projected to increase by 0.2 percentage points of GDP compared to 2021. Nationally financed investment is projected to provide an expansionary contribution to the fiscal stance of 0.8 percentage points in 2022. Therefore, Greece plans preserve nationally financed investment, as recommended by the Council. At the same time, the growth in nationally-financed primary current expenditure (net of new revenue measures) in 2022 is projected to provide an expansionary contribution of 2.2 percentage points to the overall fiscal stance. This significant expansionary contribution includes the additional impact of the measures to address the economic and social impact of the increase in energy prices (0.6 % of GDP) as well as the costs to offer temporary protection to displaced persons from Ukraine (0.1% of GDP), while the increased expenditure for pensions and social benefits is also projected to contribute (0.6 % of GDP) to the growth in net current expenditure. Based on the Commission’s forecast, these measures are not fully matched by offsetting measures.

(19)In 2023, the fiscal stance is projected in the Commission 2022 spring forecast at +1.5% of GDP on a no-policy change assumption. Greece is projected to continue using the grants from the Recovery and Resilience Facility in 2023 to finance additional investment in support of the recovery. The positive contribution to economic activity of expenditure financed by Recovery and Resilience Facility grants and other EU funds is projected to decrease by 0.3 percentage points of GDP compared to 2022, reflecting the starting phase of the new programming period for other EU funds. Nationally-financed investment is projected to provide an expansionary contribution to the fiscal stance of 0.6 percentage points in 2023. At the same time, growth in nationally-financed primary current expenditure (net of new revenue measures) in 2023 is projected to provide a contractionary contribution of 1.7 percentage points to the overall fiscal stance. This includes the impact from the phasing out of the measures addressing the increased energy prices of 1.1% of GDP.

(20)In the 2022 Stability Programme, the general government deficit is expected to gradually decline to 0.4% of GDP in 2024 and to 0.1% by 2025. Therefore, the general government deficit is planned to remain below 3% of GDP over the Programme horizon. These projections assume that the economic recovery will continue and factor in the prolongation of growth-friendly reductions in the solidarity surcharge applied on top of the personal income tax, and in the social solidarity contributions. According to the Programme, the general government debt-to-GDP ratio is expected to decrease further, specifically with a decrease to 155.2% in 2024, and a decline to 146.5% in 2025. Based on the Commission’s analysis, debt sustainability risks appear high over the medium term.

(21)Building on reforms undertaken as part of the recovery and resilience plan, modifications in Greece’s tax policy framework could help address the investment gap. More specifically, the introduction of an advance tax ruling system could strengthen legal certainty for investors and reinforce ongoing efforts to simplify the tax system. Further, building on best practice from other Member States, a review of the existing annual lump-sum tax on the self-employed (on top of personal income tax and value added tax) could improve the structure of the tax burden on the self-employed, encourage voluntary tax compliance, and support investments. Greece is continuing to take steps to modernise its public administration, but its overall performance remains low, which is partially due to the challenge of attracting and maintaining high-calibre staff. The recovery and resilience plan contains measures aiming to improve the effectiveness of the public administration with a particular focus on improving its digital services. Beyond the measures that are part of its plan, Greece is progressing in setting up an integrated human resources management system with digital organisational charts for public sector entities and job descriptions for all posts now in place. This is expected to facilitate the allocation of resources according to identified and prioritised needs. At the same time, while the number of permanent officials has been kept broadly stable thanks to the one-in-one-out hiring rule that remains in place, there has been a steep increase in temporary staff by nearly 25% since 2018. The increase in the size of the public administration could reverse the efforts made to move Greece’s wage bill (compared to GDP) towards the EU average. Beyond the fiscal risk, given that the selection process for temporary posts is not as thorough as for permanent posts, this could weaken the integrity of the new selection process put in place for permanent civil servants. The continuation of the one-in-one-out hiring rule for permanent staff, which has been complemented by setting a ceiling for temporary staff that is being applied as of 2022, sets an overall framework for strengthening central control of hirings and enabling staffing numbers to move towards pre-pandemic levels. If the expected reduction in overall staffing levels is realised, this could allow for remuneration levels to be adjusted for specific posts and entities deemed critical and where the public administration is facing difficulties in attracting and maintaining qualified staff. This could entail linking the job description to a supplementary wage grid or establishing a special wage grid for specific public sector entities (e.g. market regulators), as such systematic approaches would not risk undermining the unified wage grid and are consistent with prudent fiscal policy. Finally, while the recovery and resilience plan does include measures to strengthen active labour market policies, there remains scope for further action to increase the employability of young people and women, to support an inclusive labour market built on more and better jobs.

(22)In accordance with Article 19(3), point (b), and Annex V, criterion 2.2, to Regulation (EU) 2021/241, the recovery and resilience plan includes an extensive set of mutually reinforcing reforms and investments to be implemented by 2026. These help address all or a significant subset of the economic and social challenges outlined in the country-specific recommendations addressed to Greece by the Council in the European Semester in 2019 and 2020, in addition to any country-specific recommendations issued up to the date of adoption of a plan. In particular, these recommendations address the quality and sustainability of public finances; accessibility and resilience of the health system; active labour market policies; policies supporting public investment in education, skills and employability; research and development; safe, smart, sustainable and resilient transport and logistics; clean and efficient production and use of energy, including renewable energy and interconnection projects; environmental infrastructure; renewal of urban areas; and the digital transformation of the public administration and businesses. The plan also includes a significant number of measures addressing challenges in the areas of fiscal structural policies, social welfare, financial stability, labour and product markets, and the modernisation of public administration, all of which follows up, broadens and complements post-programme commitments. The plan also contains measures to improve competitiveness and promote private investment by improving the business environment and simplifying the regulatory framework. These reforms are complemented by a loan facility that is intended to incentivise private investment in transformative sectors of the economy, including the green transition and digital transformation.

(23)The implementation of the recovery and resilience plan of Greece is expected to contribute to making further progress on the green and digital transition. Measures supporting the climate objectives in Greece account for 37.5% of the plan’s total allocation, while measures supporting digital objectives account for 23.3% of the plan’s total allocation. The fully-fledged implementation of the recovery and resilience plan, in line with the relevant milestones and targets, will help Greece swiftly recover from the fallout of the COVID-19 crisis, while strengthening its resilience. The systematic involvement of social partners and other relevant stakeholders remains important for the successful implementation of the recovery and resilience plan, as well as other economic and employment policies going beyond the plan, to ensure broad ownership of the overall policy agenda.