Proposal for a Council Decision on the existence of an excessive deficit in Finland
Date: 2010-06-15
Institutions: European Commission
Subjects: Finland, budget deficit, economic recession, public debt, public finance, stability pact

EN 

EN 

   EN 

 
 
EUROPEAN COMMISSION 

Brussels, 15.6.2010 
SEC(2010) 746 final 

Proposal for a 

COUNCIL DECISION 

on the existence of an excessive deficit in Finland 

EN 

   EN 

 
 
 
  
EXPLANATORY MEMORANDUM 

1. 

THE APPLICATION OF THE STABILITY AND GROWTH PACT IN THE CURRENT CRISIS 
SITUATION 

Many  EU  countries  are  presently  facing  general  government  deficits  above  the  3%  of  GDP 
reference value set in the Treaty. The often strong deterioration in the deficit as well as the 
debt  positions  must  be  seen  in  the  context  of  the  unprecedented  global  financial  crisis  and 
economic  downturn  in  2008/09.  Several  factors  are  at  play.  First,  the  economic  downturn 
brings about declining tax revenue and rising social benefit expenditure (e.g. unemployment 
benefits).  Second,  recognising  that  budgetary  policies  have  an  important  role  to  play  in  the 
current  extraordinary  economic  situation,  the  Commission  called  for  a  fiscal  stimulus  in  its 
November  2008  European  Economic  Recovery  Plan  (EERP),  endorsed  by  the  European 
Council  in  December.  The  Plan  explicated  that  the  stimulus  should  be  timely,  targeted  and 
temporary and differentiated across Member States to reflect their different positions in terms 
of public finance sustainability and competitiveness and should be reversed when economic 
conditions  improve.  Finally,  several  countries  have  taken  measures  to  stabilise  the  financial 
sector, some of which have impacted on the debt position or constitute a risk of higher deficits 
and  debt  in  the  future,  although  some  of  the  costs  of  the  government  support  could  be 
recouped in the future. 

The  Stability  and  Growth  Pact  requires  the  Commission  to  initiate  the  excessive  deficit 
procedure (EDP) whenever the deficit of a Member State exceeds the 3% of GDP reference 
value.  The  amendments  to  the  Stability  and  Growth  Pact  in  2005  aimed  at  ensuring  that  in 
particular the economic and budgetary background was taken into account fully in all steps in 
the  EDP.  In  this  way,  the  Stability  and  Growth  Pact  provides  the  framework  supporting 
government  policies  for  a  prompt  return  to  sound  budgetary  positions taking  account  of  the 
economic situation, and thereby ensuring long-term sustainability of public finances. 

2. 

PREVIOUS STEPS IN THE EXCESSIVE DEFICIT PROCEDURE 

Article 126 of the Treaty on the Functioning of the European Union lays down an excessive 
deficit procedure (EDP). This procedure is further specified in Council  Regulation  (EC) No 
1467/97  “on  speeding  up  and  clarifying  the  implementation  of  the  excessive  deficit 
procedure”1, which is part of the Stability and Growth Pact. 

According to Article 126(2) of the Treaty, the Commission has to monitor compliance with 
budgetary discipline on the basis of two criteria, namely: (a) whether the ratio of the planned 
or actual government deficit to gross domestic product (GDP) exceeds the reference value of 
3%  (unless  either  the  ratio  has  declined  substantially  and  continuously  and  reached  a  level 
that comes close to the reference value; or, alternatively, the excess over the reference value is 
only  exceptional  and  temporary  and  the  ratio  remains  close  to  the  reference  value);  and  (b) 
whether the ratio of government debt to GDP exceeds the reference value of 60% (unless the 
ratio is sufficiently diminishing and approaching the reference value at a satisfactory pace). 

1 

OJ L 209, 2.8.1997, p. 6. The report also takes into account the “Specifications on the implementation 
of the Stability and Growth Pact and guidelines on the format and content of stability and convergence 
programmes”,  endorsed  by 
the  ECOFIN  Council  of  10  November  2009,  available  at 
http://ec.europa.eu/economy_finance/sgp/legal_texts/index_en.htm. 

EN 

2 

   EN 

 
                                                 
Article 126(3) stipulates that, if a Member State does not fulfil the requirements under one or 
both of these criteria, the Commission has to  prepare a report. This report also has to “take 
into account whether the government deficit exceeds government investment expenditure and 
take  into  account  all  other  relevant  factors,  including  the  medium-term  economic  and 
budgetary position of the Member State”. 

On  the  basis  of  the  data  notified  by  the  Finnish  authorities  in  April  20102and  taking  into 
account  the  Commission  services’  spring  2010  forecast,  the  Commission  adopted  a  report 
under Article 126(3) for Finland on 12 May 20103. 

Subsequently, and in accordance with Article 126(4), the Economic and Financial Committee 
formulated an opinion on the Commission report on [27 May 2010]. 

3. 

THE EXISTENCE OF AN EXCESSIVE DEFICIT 

According  to  the  EDP  notification,  the  general  government  deficit  in  Finland  is  planned  to 
reach 4.1% of GDP in 2010, thus exceeding the 3% of GDP reference value. The Commission 
report  under  Article  126(3)  considered  that  the  planned  deficit  was  not  close  to  the  3%  of 
GDP reference value. The third supplementary budget presented by the Ministry of Finance to 
the Parliament on 14 May 2010 suggests that tax revenues in 2010 could turn out by 0.5% of 
GDP  higher-than-planned,  principally  on  account  of  stronger  corporate  tax  accrual.  This 
indicates upside risks to the current public finance projections, but given that no full-fledged 
update of these projections has been made, the deficit target for 2010 has not been officially 
changed  and  the  current  assessment  remains  valid.  The  planned  excess  over  the  reference 
value can be qualified as exceptional within the meaning of the Treaty and the Stability and 
Growth Pact. In particular, it does result from a severe economic downturn in the sense of the 
Treaty and the Stability and Growth Pact and the stimulus measures taken as a response to the 
economic downturn in line with the European Economic Recovery programme. According to 
the Commission services' spring 2010 forecast, real GDP contracted by 7.8% in 2009 and is 
forecast to recover in 2010 at 1.4%. Furthermore, the planned excess over the reference value 
can  be  considered  temporary.  According  to  the  Commission  services’  spring  2010  forecast, 
the deficit will fall below the reference value in 2011, supported by the projected economic 
recovery taking hold. The deficit criterion in the Treaty is not fulfilled. 

According to the EDP notification, the general government gross debt remains below the 60% 
of  GDP  reference  value  at  49.9%  of  GDP  in  2010.  According  to  the  Commission  services' 
spring  2010  forecast,  the  debt  ratio  is  forecast  at  50.5%  of  GDP  in  2010  and  to  increase  to 
54.9% of GDP in 2011. The debt criterion in the Treaty is fulfilled. 

In line with the provisions in the Treaty and the Stability and Growth Pact, the Commission 
also  analysed  in  its  report  “relevant  factors”.  According  to  the  Stability  and  Growth  Pact, 
these can only be taken into account in the steps leading to the decision on the existence of an 

2 

3 

According to Council Regulation (EC) No 479/2009, Member States have to report to the Commission, 
twice a year, their planned and actual government deficit and debt levels. The most recent notification 
of Finland can be found at: 
http://epp.eurostat.ec.europa.eu/portal/page/portal/government_finance_statistics/excessive_deficit/edp_
notification_tables. 
All EDP-related documents for Finland can be found at the following website: 
http://ec.europa.eu/economy_finance/sgp/deficit/countries/index_en.htm. 

EN 

3 

   EN 

 
                                                 
 
 
excessive deficit if the deficit satisfies the double condition of closeness and temporariness. In 
the  case  of  Finland,  the  double  condition  is  not  met.  Considered  on  their  own  merit,  the 
relevant factors in the current case on balance seem to be relatively favourable, based on the 
good track record of fiscal policy in Finland. 

The opinion of the Economic and Financial Committee in accordance with Article 126(4) of 
the Treaty is consistent with the assessment in the Commission report under Article 126(3). 

The Commission, having taken into account its report under Article 126(3) and the opinion of 
the  Economic  and  Financial  Committee  under  Article  126(4),  is  of  the  opinion  that  an 
excessive  deficit  exists  in  Finland.  This  opinion,  adopted  by  the  Commission  on  [15  June 
2010],  is  herewith  addressed  to  the  Council  according  to  Article  126(5).  The  Commission 
proposes  that  the  Council  shall  decide  accordingly,  in  conformity  with  Article  126(6).  In 
addition,  the  Commission  is  submitting  to  the  Council  a  recommendation  for  a  Council 
Recommendation  to  be  addressed  to  Finland  with  a  view  to  bringing  the  situation  of  an 
excessive deficit to an end according to Article 126(7). 

4. 

RECOMMENDATIONS TO END THE EXCESSIVE DEFICIT SITUATION 

the  Council 
to  Article  3(4)  of  Council  Regulation  (EC)  No  1467/97, 
According 
recommendation  under  Article  126(7)  has  to  establish  a  deadline  of  six  months  at  most  for 
effective  action  to  be  taken  by  the  Member  State  concerned  as  well  as  a  deadline  for  the 
correction  of  the  excessive  deficit,  which  “should  be  completed  in  the  year  following  its 
identification unless there are special circumstances”. Article 2(6) of the Regulation implies 
that  the  “relevant  factors”  considered  in  the  Commission  report  under  Article  126(3)  of  the 
Treaty have to be taken into account in deciding whether special circumstances exist. Article 
3(4)  of  the  Regulation  specifies  that  the  Council  has  to  recommend  that  the  Member  State 
achieves  a  “minimum  annual  improvement  of  at  least  0.5%  of  GDP  as  a  benchmark,  in  its 
cyclically  adjusted  balance  net  of  one-off  and  temporary  measures,  in  order  to  ensure  the 
correction of the excessive deficit within the deadline set in the recommendation”. 

In the case of Finland, the relevant factors, as clarified in Article 2(3) of Regulation (EC) No 
1467/97  and  examined  in  the  Commission’s  report  under  Article  124(3),  were  considered 
favourable. However, they do not suggest the existence of special circumstances warranting a 
departure from the standard deadline for correcting the deficit. In particular, according to the 
Commission  services'  spring  2010  forecast,  the  general  government  deficit  would  fall  by  a 
narrow margin below the 3% reference value under a no-policy-change assumption already in 
2011. Against this background, it is appropriate to allow the Finnish authorities to implement 
the fiscal measures in 2010 as envisaged, while ensuring that the planned breach of the 3%-
of-GDP  reference  value  would  remain  contained  and  temporary.  The  authorities  should 
specify  measures  to  ensure  that  the  planned  correction  of  the  excessive  deficit  in  2011  is 
sustained. 

Enhanced surveillance under the EDP, which seems necessary in view of the deadline for the 
correction of the excessive deficit, will require regular and timely monitoring of the progress 
made in the implementation of the fiscal consolidation strategy to ensure the correction of the 
excessive deficit. In this context, a separate chapter in the 2011 update of the Finnish Stability 
Programme could usefully be devoted to this issue. 

EN 

4 

   EN 

 
Comparison of key macroeconomic and budgetary projections 

Real GDP  
(% change) 
Output gap 
(% of potential GDP) 
General government balance 
(% of GDP) 
Primary balance 
(% of GDP) 
Cyclically-adjusted balance 
(% of GDP) 
Structural balance2 
(% of GDP) 
Government gross debt 
(% of GDP) 

Notes: 

COM spring 2010  
Min. of Fin. spring 2010 
COM spring 2010 1 
Min. of Fin. spring 2010 
COM spring 2010  
Min. of Fin. spring 2010 
COM spring 2010  
Min. of Fin. spring 2010 
COM spring 2010  
Min. of Fin. spring 2010 
COM spring 2010  
Min. of Fin. spring 2010 
COM spring 2010  
Min. of Fin. spring 2010 

2007 
4.9 
4.9 
5 
n.a. 
5.2 
5.2 
6.7 
n.a. 
2.6 
n.a. 
2.6 
n.a. 
35.2 
35.2 

2008 
1.2 
1.2 
4.1 
n.a. 
4.2 
4.1 
5.6 
n.a. 
2.1 
n.a. 
2.1 
n.a. 
34.2 
34.2 

2009 
-7.8 
-7.8 
-5 
n.a. 
-2.2 
-2.4 
-1 
n.a. 
0.3 
n.a. 
0.4 
n.a. 
44 
44 

2010 
1.4 
1.1 
-4.6 
n.a. 
-3.8 
-4.2 
-2.6 
n.a. 
-1.4 
n.a. 
-1.3 
n.a. 
50.5 
49.9 

2011 
2.1 
2.1 
-3.8 
n.a. 
-2.9 
-2.2 
-1.7 
n.a. 
-1 
n.a. 
-1 
n.a. 
54.9 
51.7 

1 Based on estimated potential growth of 2.2%, 2.1%, 1.1%, 1.0 and 1.3% respectively in the period 2007-2011. 

2 Cyclically-adjusted balance excluding one-off and other temporary measures. One-off and other temporary measures 
are specified as 0.1% of GDP in 2009 and 0.2% of GDP in 2010, both deficit-increasing according to the Commission 
services' spring 2010 forecast. 

Source: 
Ministry of Finance spring 2010 forecast; Commission services’ spring 2010 forecasts (COM);  Commission services’ 
calculations. 

EN 

5 

   EN 

 
 
 
 
  
  
 
 
 
 
 
 
  
  
  
  
  
  
  
 
 
 
 
 
 
Proposal for a 

COUNCIL DECISION 

of 15.6.2010 

on the existence of an excessive deficit in Finland 

THE COUNCIL OF THE EUROPEAN UNION, 

Having  regard  to  the  Treaty  on  the  Functioning  of  the  European  Union,  and  in  particular 
Article 126(6) thereof, 

Having regard to the proposal from the European Commission, 

Having regard to the observations made by Finland, 

Whereas: 

(1) 

(2) 

(3) 

(4) 

According  to  Article  126  of  the  Treaty  on  the  Functioning  of  the  European  Union 
Member States shall avoid excessive government deficits. 

The Stability and Growth Pact is based on the objective of sound government finances 
as a means of strengthening the conditions for price stability and for strong sustainable 
growth conducive to employment creation. 

The excessive deficit procedure (EDP) under Article 126 of the treaty, as clarified by 
Council  Regulation  (EC)  No  1467/97  on  speeding  up  and  clarifying 
the 
implementation of the excessive deficit procedure4 (which is part of the Stability and 
Growth  Pact),  provides  for  a  decision  on  the  existence  of  an  excessive  deficit.  The 
Protocol  on  the  excessive  deficit  procedure  annexed  to  the  Treaty  sets  out  further 
provisions  relating  to  the  implementation  of  the  EDP.  Council  Regulation  (EC)  No 
479/20095 lays down detailed rules and definitions for the application of the provision 
of the said Protocol.  

The  2005  reform  of  the  Stability  and  Growth  Pact  sought  to  strengthen  its 
effectiveness and economic underpinnings as well as to safeguard the sustainability of 
the public finances in the long run. It aimed at ensuring that in particular the economic 
and budgetary background was taken into account fully in all steps in the EDP. In this 
way,  the  Stability  and  Growth  Pact  provides  the  framework  supporting  government 

4 
5 

OJ L 209, 2.8.1997, p. 6.  
OJ L 145, 10.6.2009, p. 1.  

EN 

6 

   EN 

 
 
                                                 
(5) 

(6) 

(7) 

(8) 

(9) 

policies  for  a  prompt  return  to  sound  budgetary  positions  taking  account  of  the 
economic situation. 

Article  126(5)  of  the  Treaty  requires  the  Commission  to  address  an  opinion  to  the 
Council if the Commission considers that an excessive deficit in a Member State exists 
or may occur. Having taken into account its report in accordance with Article 126(3) 
and  having  regard  to  the  opinion  of  the  Economic  and  Financial  Committee  in 
accordance  with  Article  126(4),  the  Commission  concluded  that  an  excessive  deficit 
exists in Finland. The Commission therefore addressed such an opinion to the Council 
in respect of Finland on [15 June 2010]6. 

Article 126(6) of the Treaty states that the Council should consider any observations 
which the Member State concerned may wish to make before deciding, after an overall 
assessment,  whether  an  excessive  deficit  exists.  In  the  case  of  Finland,  this  overall 
assessment leads to the following conclusions. 

According  to  the  data  notified  by  the  Finish  authorities  in  April  2010,  the  general 
government  deficit  in  Finland  is  planned  to  reach  4.1%  of  GDP  in  2010,  thus 
exceeding  the  3%  of  GDP  reference  value.  While  the  third  supplementary  budget 
presented by the Ministry of Finance to the Parliament on 14 May 2010 suggests that 
tax revenues in 2010 could turn out higher-than-planned, this has not officially altered 
the deficit target. The planned deficit is not close to the 3% of GDP reference value, 
but the planned excess over the reference value can be qualified as exceptional within 
the  meaning  of  the  Treaty  and  the  Stability  and  Growth  Pact.  In  particular,  it  does 
result  from  a  severe  economic  downturn  in  the  sense  of  the  Treaty  and  the  Stability 
and  Growth  Pact.  Furthermore,  the  planned  excess  over  the  reference  value  can  be 
considered  temporary.  According  to  the  Commission  services’  spring  2010  forecast, 
the  deficit  will  fall  below  the  reference  value  in  2011,  supported  by  the  projected 
economic recovery taking hold. The deficit criterion in the Treaty is not fulfilled. 

According  to  the  data  notified  by  the  Finish  authorities  in  April  2010,  the  general 
government  gross  debt  remains  below  the  60%  of  GDP  reference  value  at  49.9%  of 
GDP in 2010. The Commission services’ spring 2010 forecast projects the debt ratio to 
be at 50.5% of GDP in 2010 and to increase to 54.9% of GDP in 2011, still to remain 
below the 60% of GDP reference value. The debt criterion in the Treaty is fulfilled. 

According to Article 2(4) of Council Regulation (EC) No 1467/97, “relevant factors” 
can  only  be  taken  into  account  in  the  steps  leading  to  the  Council  decision  on  the 
existence  of  an  excessive  deficit  in  accordance  with  Article  126(6)  if  the  double 
condition - that the deficit remains close to the reference value and that its excess over 
the  reference  value  is  temporary  -  is  fully  met.  In  the  case  of  Finland,  this  double 
condition is not met. Therefore, relevant factors are not taken into account in the steps 
leading to this decision. 

6 

All EDP-related documents for Finland can be found at the following website: 
http://ec.europa.eu/economy_finance/sgp/deficit/countries/index_en.htm. 

EN 

7 

   EN 

 
                                                 
 
HAS ADOPTED THIS DECISION: 

From an overall assessment it follows that an excessive deficit exists in Finland. 

Article 1 

Article 2 

This decision is addressed to the Republic of Finland. 

Done at Brussels, 15.6.2010 

For the Council 
The President 

EN 

8 

   EN