Communication from the Commission to the European Parliament, the Council and the Court of Auditors Consolidated annual accounts of the European Union for the financial year 2018
Date: 2019-09-30
Institutions: European Commission
Subjects: European Union, balance sheet, closing of accounts, consolidated account, financial situation, general budget (EU), implementation of the budget




C_2019327EN.01000101.xml










30.9.2019   


EN


Official Journal of the European Union


C 327/1






COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL AND THE COURT OF AUDITORS

Consolidated annual accounts of the European Union for the financial year 2018

(2019/C 327/01)

CONTENTS






FOREWORD
2








EUROPEAN UNION POLITICAL AND FINANCIAL FRAMEWORK, GOVERNANCE AND ACCOUNTABILITY
3








NOTE ACCOMPANYING THE CONSOLIDATED ACCOUNTS
9








HIGHLIGHTS OF THE FINANCIAL YEAR 2018
10








CONSOLIDATED FINANCIAL STATEMENTS AND EXPLANATORY NOTES
12








BALANCE SHEET
13








STATEMENT OF FINANCIAL PERFORMANCE
14








CASHFLOW STATEMENT
15








STATEMENT OF CHANGES IN NET ASSETS
16








NOTES TO THE FINANCIAL STATEMENTS
17








FINANCIAL STATEMENT DISCUSSION AND ANALYSIS
90








BUDGETARY IMPLEMENTATION REPORTS AND EXPLANATORY NOTES
104








GLOSSARY
159








LIST OF ABBREVIATIONS
163



FOREWORD
It is my pleasure to present the 2018 annual accounts of the European Union. They provide a complete overview of the EU finances and the implementation of the EU budget for the last year, including information on contingent liabilities, financial commitments and other obligations of the Union. Reflecting the multiannual nature of the Union’s activities, they offer explanations of the key financial figures and their evolution. The consolidated annual accounts of the European Union are part of the Commission’s integrated financial and accountability reporting package and form an essential part of our highly developed system of financial accountability.
Despite its relatively modest size, the EU budget makes a big difference to millions of Europeans. It complements national budgets and supports political priorities where it has real added value and where it can deliver results in the most efficient way.
2018 was the fifth year under the current multiannual financial framework; all the financial programmes are fully operational. The implementation of the EU budget totalled EUR 173,1 billion in commitment appropriations, and EUR 156,7 billion in payment appropriations. Throughout the year, the EU budget continued to provide our response to the challenges deriving from a complex geopolitical environment while simultaneously guaranteeing strategic investment and sustainable growth in Europe.
Nearly half of the funds were aimed at stimulating growth, employment and competitiveness. Funding was provided for reaserach and innovation under Horizon 2020, for small and medium-sized enterprises under the COSME programme or for education under Erasmus+. The European Fund for Strategic Investments, Connecting Europe Facility and the European Structural and Investment Funds all had also a major role to play. I invite you to discover the stories behind many EU investments on the ‘InvestEU’ portal (https://europa.eu/investeu).
The EU budget offered also strong support in other priority areas such as the EU’s comprehensive approach to migration, the security union and the EU’s external action. It allowed the Union to play a strong role beyond our borders during a period of turbulence in Europe’s neighbourhood and contributed to achieving cross-cutting policy objectives related to the climate change and the biodiversity. In 2018 the amount allocated to climate mainstreaming amounted to more than EUR 32 billion, 20 % of the total budget.
Finally, the continued support was provided to promoting sustainable growth and the preservation of Europe’s natural resources though the Common Agricultural and Fisheries Policies and activities in the fields of climate and environment under the LIFE programme.
The consolidated annual accounts of the European Union are produced in accordance with International Public Sector Accounting Standards. In order to uphold these standards, the Commission is consistently improving its rules and procedures, organisational structure and agility. Reporting consistently and effectively increases the accountability of the EU spending, not only for the purpose of legal compliance. It helps to engage with citizens and with other stakeholders, and to maintain their confidence and trust in the European Union.
Günther H. OETTINGER

Commissioner for Budget and Human Resources

EUROPEAN UNION POLITICAL AND FINANCIAL FRAMEWORK, GOVERNANCE AND ACCOUNTABILITY
The European Union (EU) is a Union within which the Member States confer competences to attain objectives they have in common. The Union is founded on the values of respect for human dignity, freedom, democracy, equality, the rule of law and respect for human rights, including the rights of persons belonging to minorities. These values are common to the Member States in a society in which pluralism, non-discrimination, tolerance, justice, solidarity and equality between women and men prevail.
1.   POLITICAL AND FINANCIAL FRAMEWORK

EU Treaties

The overarching objectives and principles that guide the Union and the European Institutions are defined in the Treaties. The Union and the EU institutions may only act within the limits of the competences conferred by the Treaties so as to attain the objectives set out therein and must do this in accordance with the principles (1) of subsidiarity and proportionality. To attain its objectives and carry out its policies, the Union provides itself with the necessary financial means. The Commission is responsible for implementing the objectives in cooperation with the Member States and in accordance with the principle of sound financial management.
The EU pursues the objectives established in the Treaty with a number of tools, one of which is the EU budget. Others are, for example, proposing legislation or pursuing policy strategies.

Commission political priorities

The political priorities of the Commission are defined in the political guidelines set by the President of the Commission. These guidelines provide a roadmap for the Commission’s action that is fully consistent and compatible with Europe 2020 as the EU’s long-term growth strategy.

10 PRIORITIES













—


A new boost for jobs, growth and investment.












—


A balanced and progressive trade policy to harness globalisation.














—


A connected digital single market.












—


An area of Justice and Fundamental Rights based on mutual trust.














—


A resilient Energy Union with a forward-looking climate change policy.












—


Towards a new policy on migration.














—


A deeper and fairer internal market with a strengthened industrial base.












—


Europe as a stronger global actor.














—


A deeper and fairer Economic and Monetary Union (EMU).












—


A Union of democratic change.









Europe 2020 strategy

The Europe 2020 strategy agreed in 2010 by the Heads of State or Government of EU Member States defined a 10-year jobs and growth strategy for the EU (2). The strategy put forward three mutually reinforcing priorities of smart, sustainable and inclusive growth with five EU headline targets.
The EU budget is one of the EU levers contributing to the delivery of the Europe 2020 objectives. A wide range of actions at national, EU and international levels are being mobilised to deliver concrete results in relation to the Europe 2020 strategy.

2030 Agenda for Sustainable Development (3)

Sustainable development has long been at the heart of the European project. The EU Treaties give recognition to its economic, social and environmental dimensions which should be addressed together. The EU is committed to development that meets the needs of the present without compromising the ability of future generations to meet their own needs. The EU budget plays an essential role in many sustainability challenges from youth unemployment to ageing populations, climate change, pollution, sustainable energy and migration. Under the current Commission, sustainable development is mainstreamed in key cross-cutting projects as well as in sectoral policies and initiatives.
The policies supported by the EU budget are implemented in accordance with the Multiannual Financial Framework (MFF) and corresponding sectorial legislation defining spending programmes.

Multiannual Financial Framework and spending programmes

The Multiannual Financial Framework translates the EU’s political priorities into financial terms over a period long enough to be effective and to provide a coherent long-term vision for beneficiaries of EU funds and co-financing national authorities. It sets maximum annual amounts (ceilings) for EU expenditure as a whole and for the main categories of expenditure (headings). The sum of the ceilings of all headings gives the total ceiling of commitment appropriations. The Multiannual Financial Framework is adopted by unanimity indicating the agreement of all Member States to the objectives and the level of spending (maximum level of budget commitments and payments), with the consent of the European Parliament.

Interinstitutional agreement

The Multiannual Financial Framework is complemented by the interinstitutional agreement (4) which is a political agreement between the European Parliament, the Council and the Commission. The purpose of this agreement, adopted in 2013 in accordance with Article 295 of the TFEU, is to implement budgetary discipline, improve the functioning of the annual budgetary procedure and cooperation between the institutions on budgetary matters as well as to ensure sound financial management.

Annual budget

The annual budget is prepared by the Commission and usually agreed by mid-December by the European Parliament and the Council, based on the procedure of Art. 314 TFEU. According to the principle of budget equilibrium, total revenue must equal total expenditure (payment appropriations) for a given financial year.
The main sources of funding of the EU are own resources revenues which are complemented by other revenues. There are three types of own resources: traditional own resources (such as custom duties and sugar levies), the own resource based on value added tax (VAT) and the own resource based on gross national income (GNI). Other revenues arising from the activities of the EU (e.g. competition fines) normally represent less than 10 % of total revenue. The overall amount of own resources needed to finance the budget is determined by total expenditure less other revenue. In the current MFF the total amount of own resources cannot exceed 1,20 % of the sum of gross national income (GNI) of the Member States.
The EU’s operational expenditure covers the various headings of the Multiannual Financial Framework and takes different forms, depending on how the money is paid out and managed. The EU budget is implemented in three management modes:






—


Shared management: under this method of budget implementation, tasks are delegated to Member States. About 75 % of the expenditure falls under this management mode covering such areas as agricultural spending and structural actions.










—


Direct management: this is where the budget is implemented directly by the Commission services.










—


Indirect management: this refers to cases where the Commission confers tasks of implementation of the budget to third parties, such as the EU regulatory agencies or international organisations.





Financial Regulation

The Financial Regulation (FR) (5) applicable to the general budget is a central act in the regulatory architecture of the EU’s finances defining EU financial rules applicable to the EU budget.
2.   GOVERNANCE AND ACCOUNTABILITY
2.1.   INSTITUTIONAL STRUCTURE

The organisational governance of the EU consists of institutions, agencies and other EU bodies, which are listed in note 9 of the notes to the consolidated financial statements. The European Investment Bank (EIB), the European Investment Fund (EIF) and the European Central Bank (ECB) are not included in the scope of the Financial Regulation. The main institutions, in the sense of being responsible for drafting policies and taking decisions, are the European Parliament, the European Council, the Council and the Commission.
The European Commission is a unique organisation. Under the Treaty, the Commission is responsible for planning, preparing and proposing legislation; for managing EU policies, including the monitoring of implementation of EU legislation and ensuring its enforcement and allocating EU funding; and for representing the EU internationally.
As foreseen in the Treaty (6), the Commission implements the budget in cooperation with the Member States. Together, they ensure that the appropriations are used in accordance with the principles of sound financial management. Regulations lay down the control and audit obligations of the Member States in the implementation of the budget and the resulting responsibilities. They also lay down the responsibilities and detailed rules for each institution concerning its part in effecting its own expenditure.
The Commission performs these roles under the leadership of the College of Commissioners, which sets priorities and takes overall political responsibility for the decisions of the Commission. The President, whose role was strengthened by the Nice and Lisbon Treaties, decides on the internal organisation of the Commission, ensuring that it acts consistently, efficiently and as a collegiate body.
The Commission’s internal functioning is based on a number of key principles underpinning good governance: clear roles and responsibilities, a strong commitment to performance management and compliance with the legal framework, clear accountability mechanisms, a high quality and inclusive regulatory framework, openness and transparency, and high standards of ethical behaviour.
2.2.   THE COMMISSION’S GOVERNANCE STRUCTURE

The European Commission has a unique governance system, with a clear distinction between political and administrative oversight structures and well-defined lines of responsibility and financial accountability (7). The system is based on the Treaties and the structure has evolved to adapt to a changing environment and to remain in line with best practice as set out in relevant international standards (8).
In 2018, the Commission adopted a ‘governance package’ (9), which significantly streamlined and strengthened its corporate governance arrangements and leveraged recent audit work by the European Court of Auditors (10) and the Internal Audit Service.






—


The College of Commissioners assumes collegial political responsibility for the work of the Commission. Operational implementation of the budget is delegated to Directors-General and Heads of Service who lead the administrative structure of the Commission (11).










—


The College delegates financial management tasks to the Directors-General or Heads of Service who thereby become Authorising Officers by Delegation (AOD). These tasks can further be delegated to Directors, Heads of Unit and others, who thereby become Authorising Officers by Sub-Delegation. The responsibility of the Authorising Officers covers the entire management process, from determining what needs to be done to achieve the policy objectives set by the institution to managing the activities from both an operational and budgetary standpoint.










—


The Audit Progress Committee follows-up implementation of audits, in particular of the Internal Audit Service but also on the basis of European Court of Auditors audits.










—


Under the authority of the President, the Corporate Management Board, chaired by the Secretary-General, brings together on a regular basis the Directors-General responsible for budget, human resources and security, and the Director-General of the Legal Service. The Member(s) responsible for budget and administration in the Cabinet of the President, as well as the Head(s) of Cabinet of the Member(s) of the Commission in charge of budget, human resources and administration, are observers. The board provides coordination, oversight, advice and strategic orientations on corporate management issues, in areas including the management of financial and human resources, risk management, performance management, IT governance, cyber- and physical security, business continuity, and information management. In this way, the Corporate Management Board contributes to ensuring that the necessary structures, processes and administrative policies are in place in the Commission to deliver on the political priorities of the College and the tasks entrusted to it by the Treaties in an efficient and effective manner.




2.3.   THE COMMISSION’S FINANCIAL MANAGEMENT

In the Commission, the roles and responsibilities in financial management are clearly defined (e.g. in the Financial Regulation) and applied. This is a decentralised approach with clear responsibilities with the aim of creating an administrative culture that encourages civil servants to take responsibility for activities over which they have control and to give them control over the activities for which they are responsible.
The Commission may also delegate the implementation of specific programmes to executive agencies. Expenditure decisions can also be managed via, or together with, another institution or body. A large proportion of the budget is managed under a system of shared management with the Member States, notably in the areas of structural funds and agriculture.
Budget implementation tasks are also entrusted to:






—


national agencies;










—


the European Investment Bank Group;










—


third countries;










—


international organisations (e.g. the World Bank or the United Nations);










—


other entities.




As authorising officers by delegation, the Directors-General are responsible for the sound financial management of resources. In implementing the EU budget, authorising officers by delegation must comply with the provisions of the Financial Regulation and establish an appropriate internal control framework. Among other things, the internal control objectives focus on:






—


effectiveness, efficiency and economy of operations;










—


financial control and anti-fraud;










—


integrity and ethics;










—


the management of human resources;










—


reliable reporting;










—


communication;










—


the safeguarding of assets and information.




Each authorising officer by delegation may rely on one or two senior or middle managers in charge of risk management and internal control to oversee and monitor the implementation of internal control systems. The Commission’s central services provide guidance and advice and promote best practices.
Within the context of the Commission’s Strategic Planning and Programming cycle, each authorising officer is required to prepare an annual activity report (‘AAR’) on the activities and policy achievements and results of the year. In the AAR he/she declares that resources have been used based on the principles of sound financial management and that he/she has set in place control procedures which provide the necessary guarantee concerning the legality and regularity of the underlying transactions. At Commission level the Annual Management and Performance Report for the EU budget is the main instrument through which the College of Commissioners takes political responsibility for the management of the budget.
The Accounting Officer of the Commission is centrally responsible for the treasury management, recovery procedures, laying down accounting rules based on International Public Sector Accounting Standards and methods, validating accounting systems and the preparation of the Commission’s and consolidated annual accounts of the EU. Furthermore, the Accounting Officer is required to sign the annual accounts declaring that they present fairly, in all material aspects, the financial position, the results of the operations and the cash flows of the Union. The annual accounts are adopted by the College of Commissioners. The Accounting Officer is an independent function and bears a major responsibility as regards financial reporting in the Commission. The Internal Auditor of the Commission is likewise a centralised and independent function and provides independent advice, opinions and recommendations on the quality and functioning of internal control systems inside the Commission, EU agencies and other autonomous bodies.
2.4.   PERFORMANCE FRAMEWORK

Implementing robust performance frameworks is essential for ensuring a strong focus on results, EU added value and sound management of EU programmes. The performance framework of the EU budget is highly specified, scoring higher than any Organisation for Economic Co-operation and Development (OECD) country in the standard index of performance budgeting frameworks. The EU budget performance framework reports on several types and levels of strategic goals, objectives and targets, including the Europe 2020 strategy and other political priorities. It must also take account of the complementarity and mainstreaming of policies and programmes and the key role of the Member States in implementing the EU Budget.






—


Objectives, indicators and targets are strongly featured in the programmes’ legal basis and every year the Commission reports on them through the Programme Statements that accompany the draft budget. They provide all of the key information that is necessary for careful programme scrutiny and performance measurement: this includes 7-year financial commitments; programme performance baselines (starting points for policy action); end-goals (to be achieved at the end of the multi-annual programming period); and intermediate milestones.










—


To ensure resources are allocated to priorities and that every action brings high performance and added value, the Commission promotes a performance culture across the Commission services. Moreover, over the past years it has developed an approach that promotes a better balance between compliance and performance.










—


The Annual Management and Performance Report for the EU budget provides a comprehensive overview on the performance, management and protection of the EU budget. It explains how the EU budget supports the European Union’s political priorities, the results achieved with the EU budget, and the role the Commission plays in ensuring and promoting the highest standards of budgetary and financial management.










—


The European Court of Auditors takes a systematic and thorough approach to assessing the qualitative aspects of budgeting, including the performance dimension, as a normal part of its annual reporting and through special reports.




All of these elements place the budget authority in a strong position to take performance into account as a significant factor in deciding on the next annual budget.
2.5.   FINANCIAL REPORTING

The main element of EU financial reporting is the Integrated Financial and Accountability Reporting of the EU, which comprises the consolidated annual accounts of the EU, the Annual Management and Performance Report for the budget, which includes the evaluation report according to Art. 247(1) (e) FR, the annual internal audit report, a long-term forecast of future inflows and outflows covering the next five years and the report on the follow-up to the discharge. The Integrated Financial and Accountability Reporting provides the public with a comprehensive view of the financial and operational situation of the EU each year.
The consolidated annual accounts of the EU provide financial information on the activities of the institutions, agencies and other bodies of the EU from both an accrual accounting and budgetary perspective. These accounts do not encompass the annual accounts of Member States.
The consolidated annual accounts of the EU consist of two separate but linked parts:






a)


the consolidated financial statements; and










b)


the reports on implementation of the budget, which provide an aggregated record of budget implementation.




In addition, the consolidated annual accounts of the EU are accompanied by a Financial Statement Discussion and Analysis (FSDA), which summarises significant changes and trends in the financial statements and explains significant risks and uncertainties the EU has faced and needs to address in future.
Reporting and Accountability in the Commission:







Integrated Financial & Accountability Reporting Article 247 FR









—



Consolidated Annual Accounts of the EU











—



Annual Management and Performance Report for the EU budget (incl. reporting on the evaluation of the EU finances)











—



Annual internal audit report











—



A long-term forecast of future in- and outflows for 5 years











—



Report on the follow up to the discharge










Other reports









—



Communication package at the occasion of the State of the Union address











—



General Report on the activities of the EU











—



Annual Activity Reports of the Directorates-General











—



Report on Budgetary and Financial Management









2.6.   EXTERNAL AUDIT AND DISCHARGE PROCEDURE


External audit

The European Court of Auditors (ECA) is the external auditor of the EU institutions (and bodies). The ECA’s mission is to contribute to improving EU financial management, promote accountability and transparency, and act as the independent guardian of the financial interests of the citizens of the EU. Its role as the EU’s independent external auditor is to check that EU funds are correctly accounted for, are collected and spent in accordance with the relevant rules and regulations and have achieved value for money.
As part of its activities, the ECA draws up for the use of the European Parliament and the Council:






(1)


an annual report on the activities financed from the general budget, detailing its observations on the EU annual accounts and underlying transactions;










(2)


an opinion, based on its audits and included in the annual report in the form of a statement of assurance, on (i) the reliability of the accounts and (ii) the legality and regularity of the underlying transactions involving both revenue collected and payments to final beneficiaries; and










(3)


special reports covering specific areas as well as specific annual reports (on e.g. the European Development Fund, on EU Agencies).





Discharge

The final step of the budget lifecycle is the discharge procedure for a given financial year. It represents the political dimension of the external control of budget implementation and is the decision by which the ‘Discharge Authority’ (i.e. the European Parliament, acting on a Council recommendation) ‘releases’ the Commission (and other EU bodies) from its responsibility for the management of a given budget. This decision is based on an examination of the EU consolidated annual accounts and a set of Commission reports (the Annual Management and Performance Report for the EU budget, the report on the follow-up to the previous year’s discharge and the annual report to the discharge authority on internal audits carried out) as well as on the European Court of Auditors’ Annual Report, audit opinion (the ‘Statement of Assurance’) and Special Reports. It also takes account of the Commission written replies to questions and other information requests as well as hearings of the Budget Commissioner, Commissioners and Directors-General responsible for the main spending areas and the Secretary General before the European Parliament’s Budgetary Control Committee (CONT).
The outcome of the discharge procedure may be threefold: granting, postponement or refusal of the discharge. The final discharge reports also include specific requests addressed to the Commission by both the European Parliament and the Council. These requests are subject to a follow up report in which the Commission outlines the concrete actions it has already taken or intends to take.
NOTE ACCOMPANYING THE CONSOLIDATED ACCOUNTS
The consolidated annual accounts of the European Union for the year 2018 have been prepared on the basis of the information presented by the institutions and bodies under Article 246(2) of the Financial Regulation applicable to the general budget of the European Union. I hereby declare that they were prepared in accordance with Title XIII of this Financial Regulation and with the accounting principles, rules and methods set out in the notes to the financial statements.
I have obtained from the accounting officers of these institutions and bodies, who certified its reliability, all the information necessary for the production of the accounts that show the European Union’s assets and liabilities and the budgetary implementation.
I hereby certify that based on this information, and on such checks as I deemed necessary to sign off the accounts of the European Commission, I have a reasonable assurance that the accounts present fairly, in all material aspects, the financial position, the results of the operations and the cashflows of the European Union.


Rosa ALDEA BUSQUETS

Accounting Officer of the Commission


21 June 2019



HIGHLIGHTS OF THE FINANCIAL YEAR 2018

Implementation of the 2018 Union budget

The 2018 adopted budget focused on two main policy priorities for Europe among the ten priorities set by President Juncker at the beginning of this Commission’s mandate. One was a European response to the new challenges deriving from the complex geopolitical environment, from migration management to the protection of the EU’s external borders and the security of its citizens. The other was strategic investment and sustainable growth, to support economic cohesion, and create jobs, in particular for young people. In addition to these two clear priorities, in 2018, the EU budget and other instruments continued to support farmers and rural development, and deepened and strengthened the strategic interconnectors and networks between EU countries with the implementation of the digital single market and the energy union. The Commission continued to support the external projection of the EU as a key economic and political partner as well as a leading international provider of investment and humanitarian assistance.
The implementation of the EU budget in 2018 totalled EUR 173,1 billion in commitment appropriations, and EUR 156,7 billion in payment appropriations.
Nearly half of the funds – EUR 87,4 billion in commitment appropriations were aimed at stimulating smart and inclusive growth, jobs, competitiveness and cohesion. This included funding for research and innovation under Horizon 2020, education under Erasmus+, small and medium-sized enterprises under the COSME programme, the Connecting Europe Facility (CEF), the guarantee fund for the European Fund for Strategic Investments (EFSI) which is the tool behind the Investment Plan for Europe, and fostering convergence among Member States and among regions through the European Structural and Investment Funds (ESIF). Moreover, the EU budget support to European farmers amounted to EUR 44,4 billion in payments made.
The budget was also used to reinforce the external borders of the Union and address the migration and refugee crisis by funding actions including emergency assistance, relocation, border control, resettlement, return and integration of refugees and asylum-seekers. Finally, the budget continued to fund programmes to support the protection of justice and fundamental rights as well as social cohesion so that our European societies remain inclusive, free and fair.

The United Kingdom’s withdrawal from the European Union


Background

On 23 June 2016 a majority of the citizens of the United Kingdom who voted in the referendum on membership of the European Union voted to leave the EU. On 29 March 2017, the United Kingdom formally notified the European Council of its intention to leave the EU and the European Atomic Energy Community (Euratom). In doing so, it triggered Article 50 of the Treaty on European Union, which sets out the procedure for a Member State to withdraw from the Union.

The negotiation process

On 19 March 2018 the Commission published a draft of the Withdrawal Agreement that outlined the progress made in the negotiations. In the financial settlement part of the draft Withdrawal Agreement, the EU and the UK translated the progress achieved in the first phase of negotiations into a legal text.
A Joint Report was published on 14 November 2018 reporting agreement at negotiators’ level on the full text of the draft Withdrawal Agreement, and on an outline of the Political Declaration on the framework for the future relationship between the United Kingdom and the European Union. On the same day, this updated and agreed draft Withdrawal Agreement was published, in which the UK agreed to pay all its obligations under the current Multiannual Financial Framework (MFF) and previous financial perspectives as if it were still a Member State, including its share of the Union’s liabilities and contingent liabilities. The UK government approved the draft Withdrawal Agreement on the 14 November and the European Council endorsed it on 25 November 2018. On 11 January 2019, the Council (Article 50) approved the decision on the conclusion of the Withdrawal Agreement and sent it to the European Parliament for its consent. On the request of the United Kingdom, in accordance with the procedure set in the Article 50 of the TFEU, on 21 March 2019 the European Council agreed to extend the UK’s departure date to 22 May 2019, provided the Withdrawal Agreement was approved by the House of Commons by 29 March 2019 at the latest and to the 12 April 2019 if it was not the case (12). Subsequent to this, the House of Commons did not approve the Withdrawal Agreement by 29 March 2019 and so, again on the request of the United Kingdom, on 10 April 2019 the European Council agreed to an extension to the UK’s departure until 31 October 2019 (13). The withdrawal should take place on the first day of the month following the completion of the ratification procedures or on 1 November 2019, whichever is the earliest. The United Kingdom will remain a Member State until the new withdrawal date, with full rights and obligations in accordance with Article 50 TEU, and the United Kingdom has a right to revoke its notification at any time.

Financial settlement and the 2018 EU annual accounts

With regard to the financial settlement, it was stated in the draft Withdrawal Agreement published on 14 November 2018, that the UK would pay all its obligations under the current MFF and previous financial perspectives as if it were still a Member State. More specifically, the draft Withdrawal Agreement states that the United Kingdom shall in particular be liable to the Union for its share of:






—


The budgetary commitments of the Union budget and of the budgets of the Union decentralised agencies outstanding on 31 December 2020 – see Article 140 of the draft Withdrawal Agreement;










—


The financing of the Union’s liabilities incurred until 31 December 2020, with certain exceptions – see Article 142;










—


The contingent financial liabilities of the Union arising from financial operations decided/approved before the withdrawal date – see Articles 143 & 144; and










—


The payments required to discharge the contingent liabilities of the Union that become due related to legal cases concerning financial interests of the Union (provided that the facts forming the subject matter of those cases occurred no later than 31 December 2020) – see Article 147.




At the time of the signature of these accounts, and in the absence of ratification by the United Kingdom, the actual departure date and manner of departure (with or without agreement) is not yet known. Based on this current situation, there is no financial impact to be reported in the 2018 consolidated EU annual accounts.
CONSOLIDATED FINANCIAL STATEMENTS AND EXPLANATORY NOTES (14)


CONTENTS






BALANCE SHEET
13








STATEMENT OF FINANCIAL PERFORMANCE
14








CASHFLOW STATEMENT
15








STATEMENT OF CHANGES IN NET ASSETS
16








NOTES TO THE FINANCIAL STATEMENTS
17










1.

SIGNIFICANT ACCOUNTING POLICIES
17










2.

NOTES TO THE BALANCE SHEET
30










3.

NOTES TO THE STATEMENT OF FINANCIAL PERFORMANCE
57










4.

CONTINGENT LIABILITIES AND ASSETS
65










5.

BUDGETARY AND LEGAL COMMITMENTS
69










6.

FINANCIAL RISK MANAGEMENT
73










7.

RELATED PARTY DISCLOSURES
84










8.

EVENTS AFTER THE BALANCE SHEET DATE
86










9.

SCOPE OF CONSOLIDATION
86




BALANCE SHEET









EUR million




 


Note


31.12.2018


31.12.2017





NON-CURRENT ASSETS



 


 


 





Intangible assets




2.1




446




405






Property, plant and equipment




2.2




11 185 




10 745 






Investments accounted for using the equity method




2.3




591




581






Financial assets




2.4




65 231 




59 980 






Pre-financing




2.5




26 006 




25 022 






Exchange receivables and non-exchange recoverables




2.6




416




611





 


 



103 875 




97 344 






CURRENT ASSETS



 


 


 





Financial assets




2.4




4 168 




8 655 






Pre-financing




2.5




23 968 




24 005 






Exchange receivables and non-exchange recoverables




2.6




24 248 




11 755 






Inventories




2.7




73




295






Cash and cash equivalents




2.8




18 113 




24 111 





 


 



70 570 




68 821 






TOTAL ASSETS



 



174 444 




166 165 






NON-CURRENT LIABILITIES



 


 


 





Pension and other employee benefits




2.9




(80 456 )




(73 122 )






Provisions




2.10




(3 281 )




(2 880 )






Financial liabilities




2.11




(53 289 )




(50 063 )





 


 



(137 025 )




(126 065 )






CURRENT LIABILITIES



 


 


 





Provisions




2.10




(852)




(659)






Financial liabilities




2.11




(2 617 )




(6 850 )






Payables




2.12




(32 227 )




(39 048 )






Accrued charges and deferred income




2.13




(63 186 )




(63 902 )





 


 



(98 882 )




(110 459 )






TOTAL LIABILITIES



 



(235 907 )




(236 524 )






NET ASSETS



 



(61 463 )




(70 359 )






Reserves




2.14




4 961 




4 876 






Amounts to be called from Member States
 (*1)




2.15




(66 424 )




(75 234 )






NET ASSETS



 



(61 463 )




(70 359 )






STATEMENT OF FINANCIAL PERFORMANCE









EUR million




 


Note


2018


2017





REVENUE



 


 


 





Revenue from non-exchange transactions



 


 


 





GNI resources




3.1




105 780 




78 620 






Traditional own resources




3.2




22 767 




20 520 






VAT resources




3.3




17 624 




16 947 






Fines




3.4




6 740 




4 664 






Recovery of expenses




3.5




2 215 




1 879 






Other




3.6




3 312 




10 376 





 


 



158 438 




133 006 






Revenue from exchange transactions



 


 


 





Financial revenue




3.7




3 115 




1 845 






Other




3.8




1 379 




1 332 





 


 



4 494 




3 177 






Total Revenue



 



162 932 




136 183 






EXPENSES



 


 


 





Implemented by Member States




3.9



 


 





European Agricultural Guarantee Fund



 



(43 527 )




(44 289 )






European Agricultural Fund for Rural Development and other rural development instruments



 



(13 149 )




(11 359 )






European Regional Development Fund and Cohesion Fund



 



(30 230 )




(17 650 )






European Social Fund



 



(11 935 )




(7 353 )






Other



 



(2 826 )




(1 253 )






Implemented by the Commission, executive agencies and trust funds




3.10




(17 551 )




(15 738 )






Implemented by other EU agencies and bodies




3.11




(3 396 )




(2 667 )






Implemented by third countries and international organisations




3.11




(4 016 )




(4 115 )






Implemented by other entities




3.11




(3 569 )




(1 478 )






Staff and pension costs




3.12




(10 929 )




(10 002 )






Changes in employee benefits actuarial assumptions




3.13



—



(3 544 )






Finance costs




3.14




(1 677 )




(1 896 )






Other expenses




3.15




(6 208 )




(6 756 )






Total Expenses



 



(149 014 )




(128 101 )






ECONOMIC RESULT OF THE YEAR



 



13 918 




8 082 






CASHFLOW STATEMENT








EUR million




 


2018


2017





Economic result of the year




13 918 




8 082 






Operating activities



 


 





Amortisation




104




99






Depreciation




998




888






(Reversal of) impairment losses on investments



—


—





(Increase)/decrease in loans




1 041 




497






(Increase)/decrease in pre-financing




(947)




(3 557 )






(Increase)/decrease in exchange receivables and non-exchange recoverables




(12 299 )




(745)






(Increase)/decrease in inventories




222




(130)






Increase/(decrease) in pension and other employee benefits




7 334 




5 891 






Increase/(decrease) in provisions




594




928






Increase/(decrease) in financial liabilities




(1 007 )




(438)






Increase/(decrease) in payables




(6 821 )




(957)






Increase/(decrease) in accrued charges and deferred income




(716)




(3 678 )






Prior year budgetary surplus taken as non-cash revenue




(556)




(6 405 )






Remeasurement of employee benefits liability (non-cash movement not included in statement of financial performance)




(4 396 )



—





Other non-cash movements




(71)




3






Investing activities



 


 





(Increase)/decrease in intangible assets and property, plant and equipment




(1 583 )




(1 687 )






(Increase)/decrease in investments accounted for using the equity method




(9)




(53)






(Increase)/decrease in available for sale financial assets




(1 811 )




(3 190 )






(Increase)/decrease in financial assets at fair value through surplus or deficit




7




(22)






NET CASHFLOW




(5 998 )




(4 474 )






Net increase/(decrease) in cash and cash equivalents




(5 998 )




(4 474 )






Cash and cash equivalents at the beginning of the year




24 111 




28 585 






Cash and cash equivalents at year-end




18 113 




24 111 






STATEMENT OF CHANGES IN NET ASSETS










EUR million




 


Amounts to be called from Member States Accumulated Surplus/(Deficit)


Other reserves


Fair value reserve


Net Assets





BALANCE AS AT 31.12.2016




(76 881 )




4 516 




325




(72 040 )






Movement in Guarantee Fund reserve




(20)




20



—


—





Fair value movements



—


—



(2)




(2)






Other




(11)




62




(46)




5






2016 budget result credited to Member States




(6 405 )



—


—



(6 405 )






Economic result of the year




8 082 



—


—



8 082 






BALANCE AS AT 31.12.2017




(75 234 )




4 598 




278




(70 359 )






Movement in Guarantee Fund reserve




(186)




186



—


—





Fair value movements



—


—



(47)




(47)






Remeasurements in employee benefits liabilities




(4 396 )



—


—



(4 396 )






Other




30




(54)



—



(24)






2017 budget result credited to Member States




(556)



—


—



(556)






Economic result of the year




13 918 



—


—



13 918 






BALANCE AS AT 31.12.2018




(66 424 )




4 730 




231




(61 463 )






NOTES TO THE FINANCIAL STATEMENTS

1.   SIGNIFICANT ACCOUNTING POLICIES
1.1.   LEGAL BASIS AND ACCOUNTING RULES

The accounts of the EU are kept in accordance with Regulation (EU, Euratom) 2018/1046 of the European Parliament and of the Council of 18 July 2018 on the financial rules applicable to the general budget of the Union, amending Regulations (EU) No 1296/2013, (EU) No 1301/2013, (EU) No 1303/2013, (EU) No 1304/2013, (EU) No 1309/2013, (EU) No 1316/2013, (EU) No 223/2014, (EU) No 283/2014, and Decision No 541/2014/EU and repealing Regulation (EU, Euratom) No 966/2012 (15) hereinafter referred to as the ‘Financial Regulation’ (FR).
In accordance with Article 80 of the Financial Regulation, the EU prepares its financial statements on the basis of accrual-based accounting rules that are based on International Public Sector Accounting Standards (IPSAS). These accounting rules, adopted by the Accounting Officer of the Commission, have to be applied by all the institutions and EU bodies falling within the scope of consolidation in order to establish a uniform set of rules for accounting, valuation and presentation of the accounts with a view to harmonising the process for drawing up the financial statements and consolidation.

Application of new and amended European Union accounting rules (EAR)

Revised EAR which is effective for annual periods beginning on or after 1 January 2018
The following accounting rules, adopted by the Accounting Officer of the Commission, became mandatorily effective in the current year:






—


Revision of EAR 12 ‘Employee Benefits’: The revised EAR 12 was adopted by the Accounting Officer in 2017 which is based on the new IPSAS 39 ‘Employee Benefits’ published in July 2016. For the first application of the revised EAR 12 there were no significant impacts on the EU consolidated financial statements, aside from the recognition of any gain or loss resulting from changes in the actuarial assumptions, which under the revised EAR is recognised directly in net assets, in contrast with the previous requirement to recognise in surplus or deficit.




New EAR adopted but not yet effective at 31 December 2018
The EU has not applied the following new EAR, which have been adopted by the Accounting Officer of the Commission, but which is not yet effective:






—


New EAR 20 ‘Public Sector Combinations’ (effective for annual periods beginning on or after 1 January 2019): The EAR 20, which is based on the IPSAS 40 ‘Public Sector Combinations’, establishes the classification of a public sector combination into two different types depending on whether the transaction takes place under common control or not: (i) amalgamation, in which the transaction is based on the carrying amounts of the entity combined with the EU; and (ii) acquisition, in which the transaction is based on the acquisition date fair values of the entity acquired by the EU. Both have distinct requirements and levels of disclosure, in order to provide a better understanding of its effects to users of the financial statements of the EU.
The impact on the EU financial statements in the year of initial application will depend on whether in that period the EU would enter into a public sector combination transaction.




1.2.   ACCOUNTING PRINCIPLES

The objective of financial statements is to provide information about the financial position, performance and cashflows of an entity that is useful to a wide range of users. For the EU as a public sector entity, the objectives are more specifically to provide information useful for decision-making, and to demonstrate the accountability of the entity for the resources entrusted to it. It is with these goals in mind that the present document has been drawn up.
The overall considerations (or accounting principles) to be followed when preparing the financial statements are laid down in EU accounting rule 1 ‘Financial Statements’ and are the same as those described in IPSAS 1: fair presentation, accrual basis, going concern, consistency of presentation, materiality, aggregation, offsetting and comparative information. The qualitative characteristics of financial reporting are relevance, faithful representation (reliability), understandability, timeliness, comparability and verifiability.
1.3.   CONSOLIDATION


Scope of consolidation

The consolidated financial statements of the EU comprise all significant controlled entities (i.e. the EU institutions (including the Commission) and the EU agencies), associates and joint ventures. The complete list of consolidated entities can be found in note 9 of the EU financial statements. It now comprises 52 controlled entities and 1 associate. Entities that fall under the consolidation scope, but which are immaterial to the EU consolidated financial statements as a whole, need not be consolidated or accounted for using equity method where to do so would result in excessive time or cost to the EU. Those entities are referred to as ‘Minor entities’ and are separately listed in note 9. In 2018, 7 entities have been classified as minor entities.

Controlled entities

The decision to include an entity in the scope of consolidation is based on the control concept. Controlled entities are all entities for which the EU is exposed, or has right, to variable benefits from its involvement and has the ability to affect the nature and amount of those benefits through its power over the other entity. This power must be presently exercisable and must relate to the relevant activities of the entity. Controlled entities are fully consolidated. The consolidation begins at the first date on which control exists, and ends when such control no longer exists.
The most common indicators of control within the EU are: creation of the entity through founding treaties or secondary legislation, financing of the entity from the EU budget, the existence of voting rights in the governing bodies, audit by the European Court of Auditors and discharge by the European Parliament. An individual assessment for each entity is made in order to decide whether one or all of the criteria listed above are sufficient to result in control.
Under this approach, the EU’s institutions (except the European Central Bank) and agencies (excluding the agencies of the former 2nd pillar) are considered as under the exclusive control of the EU and are therefore included in the consolidation scope. Furthermore, the European Coal and Steel Community (ECSC) in Liquidation is also considered as a controlled entity.
All material ‘inter-entity transactions and balances’ between EU controlled entities are eliminated, while unrealised gains and losses on such transactions are not material and so have not been eliminated.

Joint Arrangements

A joint arrangement is an agreement over which the EU and one or more parties have joint control. Joint control is contractually agreed sharing of control over an arrangement, which exists only when decisions about the relevant activities require the unanimous consent of parties sharing control. Joint agreements can be either joint operations or joint ventures. In case a joint arrangement is structured through a separate vehicle and parties to the joint arrangement have rights to the net assets of the arrangement, this joint arrangement classifies as a joint venture. Participations in joint ventures are accounted for using the equity method (see note 1.5.4). In case the parties have rights to the assets, and obligations for the liabilities, related to the arrangement, this joint arrangement is classified as a joint operation. In relation to its interest in joint operations, the EU recognises in its financial statements: its assets and liabilities, revenue and expense, as well as its share of assets, liabilities, revenue and expense held or incurred jointly.

Associates

Associates are entities over which the EU has, directly or indirectly, significant influence but not control. It is presumed that significant influence exists if the EU holds directly or indirectly 20 % or more of the voting rights. Participations in associates are accounted for using the equity method (see note 1.5.4).

Non-consolidated entities the funds of which are managed by the Commission

The funds of the Joint Sickness Insurance Scheme for staff of the EU, the European Development Fund and the Participants Guarantee Fund are managed by the Commission on their behalf. However, since these entities are not controlled by the EU, they are not consolidated in its financial statements.
1.4.   BASIS OF PREPARATION

Financial statements are presented annually. The accounting year begins on 1 January and ends on 31 December.
1.4.1.   
Currency and basis for conversion



Functional and reporting currency

The financial statements are presented in millions of euros, unless stated otherwise, the euro being the EU’s functional and reporting currency.

Transactions and balances

Foreign currency transactions are translated into euros using the exchange rates prevailing at the dates of the transactions. Foreign exchange gains and losses resulting from the settlement of foreign currency transactions and from the re-translation at year-end exchange rates of monetary assets and liabilities denominated in foreign currencies are recognised in the statement of financial performance. Translation differences on non-monetary financial instruments classified as available for sale financial assets are included in the fair value reserve.
Different conversion methods apply to property, plant and equipment and intangible assets, which retain their value in euros at the rate that applied at the date when they were purchased.
Year-end balances of monetary assets and liabilities denominated in foreign currencies are converted into euros on the basis of the European Central Bank (ECB) exchange rates applying on 31 December:

Euro exchange rates











Currency


31.12.2018


31.12.2017


Currency


31.12.2018


31.12.2017





BGN




1,9558 




1,9558 




PLN




4,3014 




4,177 






CZK




25,7240 




25,5350 




RON




4,6635 




4,6585 






DKK




7,4673 




7,4449 




SEK




10,2548 




9,8438 






GBP




0,8945 




0,8872 




CHF




1,1269 




1,1702 






HRK




7,4125 




7,4400 




JPY




125,8500 




135,01 






HUF




320,9800 




310,3300 




USD




1,145 




1,1993 





1.4.2.   
Use of estimates


In accordance with IPSAS and generally accepted accounting principles, the financial statements necessarily include amounts based on estimates and assumptions by management based on the most reliable information available. Significant estimates include, but are not limited to: amounts for employee benefit liabilities, provisions, financial risk on inventories and accounts receivable, accrued revenue and charges, contingent assets and liabilities, degree of impairment of intangible assets and property, plant and equipment and amounts disclosed in the notes concerning financial instruments. Actual results could differ from those estimates. Changes in estimates are reflected in the period in which they become known.
1.5.   BALANCE SHEET

1.5.1.   
Intangible assets


Acquired computer software licences are stated at historical cost less accumulated amortisation and impairment losses. The assets are amortised on a straight-line basis over their estimated useful lives (311 years). The estimated useful lives of intangible assets depend on their specific economic lifetime or legal lifetime determined by an agreement. Internally developed intangible assets are capitalised when the relevant criteria of the EU accounting rules are met and the expenses relate solely to the development phase of the asset. The costs capitalisable include all directly attributable costs necessary to create, produce, and prepare the asset to be capable of operating in the manner intended by management. Costs associated with research activities, non-capitalisable development costs and maintenance costs are recognised as expenses as incurred.
1.5.2.   
Property, plant and equipment


All property, plant and equipment are stated at historical cost less accumulated depreciation and impairment losses. Cost includes expenditure that is directly attributable to the acquisition, construction or transfer of the asset.
Subsequent costs are included in the asset’s carrying amount or recognised as a separate asset, as appropriate, only when it is probable that future economic benefits or service potential associated with the item will flow to the EU and its cost can be measured reliably. Repairs and maintenance costs are charged to the statement of financial performance during the financial period in which they are incurred.
Land and works of art are not depreciated as they are deemed to have an indefinite useful life. Assets under construction are not depreciated, as these assets are not yet available for use. Depreciation on other assets is calculated using the straight-line method to allocate their cost less their residual values over their estimated useful lives, as follows:






Type of asset


Straight line depreciation rate





Buildings




4 % to 10 %






Space assets




8 % to 25 %






Plant and equipment




10 % to 25 %






Furniture and vehicles




0 % to 25 %






Computer hardware




25 % to 33 %






Other




10 % to 33 %





Gains or losses on disposals are determined by comparing proceeds less selling expenses with the carrying amount of the disposed asset and are included in the statement of financial performance.

Leases

Leases of tangible assets, where the EU has substantially all the risks and rewards of ownership, are classified as finance leases. Finance leases are capitalised at the lease’s commencement at the lower of the fair value of the leased asset and the present value of the minimum lease payments. The interest element of the finance lease payment is charged to expenditure over the period of the lease at a constant periodic rate in relation to the balance outstanding. The rental obligations, net of finance charges, are included in financial liabilities (non-current and current). The interest element of the finance cost is charged to the statement of financial performance over the lease period so as to produce a constant periodic interest rate on the remaining balance of the liability for each period. The assets held under finance leases are depreciated over the shorter of the asset’s useful life and the lease term.
Leases where the lessor retains a significant portion of the risks and rewards inherent to ownership are classified as operating leases. Operating lease payments are recognised as an expense in the statement of financial performance on a straight-line basis over the lease term.
1.5.3.   
Impairment of non-financial assets


Assets that have an indefinite useful life are not subject to amortisation/depreciation and are tested annually for impairment. Assets that are subject to amortisation/depreciation are reviewed for impairment whenever events or changes in circumstances indicate that the carrying amount may not be recoverable. An impairment loss is recognised for the amount by which the asset’s carrying amount exceeds its recoverable (service) amount. The recoverable (service) amount is the higher of an asset’s fair value less costs to sell and its value in use.
Intangible assets and property, plant and equipment residual values and useful lives are reviewed, and adjusted if appropriate, at least once per year. An asset’s carrying amount is written down immediately to its recoverable (service) amount if the asset’s carrying amount is greater than its estimated recoverable (service) amount. If the reasons for impairments recognised in previous years no longer apply, the impairment losses are reversed accordingly.
1.5.4.   
Investments accounted for using the equity method



Participations in associates and joint ventures

Investments accounted for using the equity method are initially recognised at cost, being the carrying amount subsequently increased or decreased to recognise the EU’s share of the surplus or deficit of the investee after the date of acquisition. The EU’s share of the investee’s surplus or deficit is recognised in the statement of financial performance, and its share of investee’s movements in equity is recognised in the reserves within net assets. The initial cost together with all movements (further contributions, share of economic results and reserve movements, impairments and dividends) give the book value of the investment in the financial statements at the balance sheet date. Distributions received from the investment reduce the carrying amount of the asset.
If the EU’s share of deficits of an investment accounted for using the equity method equals or exceeds its interest in the investment, the EU discontinues recognising its share of further losses (‘unrecognised losses’). After the EU’s interest is reduced to zero, additional losses are provided for and a liability is recognised only to the extent that the EU has incurred legal or constructive obligation or made payments on behalf of the entity.
If there are indications of impairment, a write-down to the lower recoverable amount is necessary. The recoverable amount is determined as described under note 1.5.3. If the reason for impairment ceases to apply at a later date, the impairment loss is reversed to the carrying amount that would have been determined had no impairment loss been recognised.
In cases where the EU holds 20 % or more of an investment capital fund, it does not seek to exert significant influence. Such funds are therefore treated as financial instruments and categorised as available for sale financial assets.
Associates and joint ventures classified as minor entities are not accounted for under the equity method. EU contributions to those entities are accounted for as an expense of the period.
1.5.5.   
Financial assets



Classification

The EU classifies their financial assets in the following categories: financial assets at fair value through surplus or deficit; loans and receivables; held-to-maturity investments; and available for sale financial assets. The classification of financial instruments is determined at initial recognition and re-evaluated at each balance sheet date.
(i)   Financial assets at fair value through surplus or deficit

A financial asset is classified in this category if acquired principally for the purpose of selling in the short term or if so designated by the entity. Derivatives are also categorised in this category. Assets in this category are classified as current assets if they are expected to be realised within 12 months of the balance sheet date.
(ii)   Loans and receivables

Loans and receivables are non-derivative financial assets with fixed or determinable payments that are not quoted in an active market. They arise when the EU provides money, goods or services directly to a debtor with no intention of trading the receivable, or in case the EU is subrogated to the rights of the original lender following a payment made by the EU under a guarantee contract. Payments due within 12 months of the balance sheet date are classified as current assets. Payments due after 12 months from the balance sheet date are classified as non-current assets. Loans and receivables include term deposits with the original maturity above three months.
(iii)   Held-to-maturity investments

Held-to-maturity investments are non-derivative financial assets with fixed or determinable payments and fixed maturities that the EU has the positive intention and ability to hold to maturity. During this financial year, the EU did not hold any investments in this category.
(iv)   Available for sale financial assets

Available for sale financial assets are non-derivatives that are either designated in this category or not classified in any of the other categories. They are classified as either current or non-current assets, depending on the period of time the EU expects to hold them. Investments in entities that are neither consolidated nor accounted for using the equity method and other equity-type investments (e.g. Risk Capital Operations) are also classified as available for sale financial assets.

Initial recognition and measurement

Purchases and sales of financial assets at fair value through surplus or deficit, held-to-maturity and available for sale are recognised on trade-date – the date on which the EU commits to purchase or sell the asset. Cash equivalents and loans are recognised when cash is deposited in a financial institution or advanced to borrowers. Financial instruments are initially recognised at fair value. For all financial assets not carried at fair value through surplus or deficit transactions costs are added to the fair value at initial recognition. Financial assets carried at fair value through surplus or deficit are initially recognised at fair value and transaction costs are expensed in the statement of financial performance.
The fair value of a financial asset on initial recognition is normally the transaction price (i.e. the fair value of the consideration received), unless the fair value of that instrument is evidenced by comparison with other observable current market transactions in the same instrument or based on a valuation technique whose variables include only data from observable markets (e.g. in case of some derivative contracts). However, when a long-term loan that carries no interest or an interest below market conditions is granted, its fair value can be estimated as the present value of all future cash receipts discounted using the prevailing market rate of interest for a similar instrument with a similar credit rating.
Loans granted are measured at their nominal amount, which is considered to be the fair value of the loan. The reasoning for this is as follows:






—


The ‘market environment’ for EU lending is very specific and different from the capital market used to issue commercial or government bonds. As lenders in these markets have the opportunity to choose alternative investments, the opportunity possibility is factored into market prices. However, this opportunity for alternative investments does not exist for the EU, which is not allowed to invest money on the capital markets; it only borrows funds for the purpose of lending at the same rate. This means that there is no alternative lending or investment option available to the EU for the sums borrowed. Thus, there is no opportunity cost and therefore no basis of comparison with market rates. In fact, the EU lending operation itself represents the market. Essentially, since the opportunity cost ‘option’ is not applicable, the market price does not fairly reflect the substance of the EU lending transactions. Therefore, it is not appropriate to determine the fair value of EU lending with reference to commercial or government bonds.










—


Furthermore, as there is no active market or similar transactions to compare with, the interest rate to be used by the EU for fair valuing its lending operations under the EFSM, BOP and other such loans, should be the interest rate charged.










—


In addition, for these loans, there are compensating effects between loans and borrowings due to their back-to-back character. Thus, the effective interest for the loan equals the effective interest rate for the related borrowings. The transaction costs incurred by the EU and then recharged to the beneficiary of the loan are directly recognised in the statement of financial performance.




Financial instruments are derecognised when the rights to receive cashflows from the investments have expired or the EU has transferred substantially all risks and rewards of ownership to another party.

Subsequent measurement







a)


Financial assets at fair value through surplus or deficit are subsequently carried at fair value. Gains and losses arising from changes in the fair value of the ‘financial instruments at fair value through surplus or deficit’ category are included in the statement of financial performance in the period in which they arise.










b)


Loans and receivables are carried at amortised cost using the effective interest method. In the case of loans granted on borrowed funds, the same effective interest rate is applied to both the loans and borrowings since these loans have the characteristics of ‘back-to-back operations’ and the differences between the loan and the borrowing conditions and amounts are not material. The transaction costs incurred by the EU and then recharged to the beneficiary of the loan are directly recognised in the statement of financial performance.










c)


Held to maturity assets are carried at amortised cost using the effective interest method. The EU currently holds no held to maturity investments.










d)


Available for sale financial assets are subsequently carried at fair value. Gains and losses arising from changes in the fair value of available for sale financial assets are recognised in the fair value reserve, except for translation differences on monetary assets, which are recognised in the statement of financial performance. When assets classified as available for sale financial assets are derecognised or impaired, the cumulative fair value adjustments previously recognised in the fair value reserve are recognised in the statement of financial performance. Interest on available for sale financial assets calculated using the effective interest method is recognised in the statement of financial performance. Dividends on available for sale equity instruments are recognised when the EU’s right to receive payment is established.




The fair values of quoted investments in active markets are based on current bid prices. If the market for a financial asset is not active (and for unlisted securities and over-the–counter derivatives), the EU establishes a fair value by using valuation techniques. These include the use of recent arm’s length transactions, reference to other instruments that are substantially the same, discounted cashflow analysis, option pricing models and other valuation techniques commonly used by market participants.
Investments in Venture Capital Funds, classified as available for sale financial assets, which do not have a quoted market price in an active market are valued at the attributable net asset value, which is considered as an equivalent of their fair value.
In cases where the fair value of investments in equity instruments that do not have a quoted market price in an active market cannot be reliably measured, these investments are valued at cost less impairment losses.

Impairment of financial assets

A financial asset is impaired and a loss is recognised if, and only if, there is objective evidence of impairment as a result of one or more events that occurred after the initial recognition of the asset and that loss event (or events) has an impact on the estimated future cashflows of the financial asset that can be reliably estimated. The EU assesses at each reporting date whether there is objective evidence that a financial asset is impaired.
(a)   Assets carried at amortised cost

If there is objective evidence that an impairment loss on loans and receivables or held-to-maturity investments carried at amortised cost has been incurred, the amount of the loss is measured as the difference between the asset’s carrying amount and the present value of estimated future cashflows (excluding future credit losses that have not been incurred) discounted at the financial asset’s original effective interest rate. The carrying amount of the asset is reduced and the amount of the loss is recognised in the statement of financial performance. If a loan or held-to-maturity investment has a variable interest rate, the discount rate for measuring any impairment loss is the current effective interest rate determined under the contract. The calculation of the present value of the estimated future cashflows of a collateralised financial asset reflects the cashflows that may result from foreclosure less costs for obtaining and selling the collateral, whether or not foreclosure is probable. If, in a subsequent period, the amount of the impairment loss decreases and the decrease can be related objectively to an event occurring after the impairment was recognised, the previously recognised impairment loss is reversed through the statement of financial performance.
(b)   Assets carried at fair value

In the case of equity investments classified as available for sale financial assets, a significant or permanent (prolonged) decline in the fair value of the security below its cost is considered in determining whether the securities are impaired. If any such evidence exists for available for sale financial assets, the cumulative loss – measured as the difference between the acquisition cost and the current fair value, less any impairment loss on that financial asset previously recognised in the statement of financial performance – is removed from reserves and recognised in the statement of financial performance. Impairment losses recognised in the statement of financial performance on equity instruments are not reversed through the statement of financial performance. If, in a subsequent period, the fair value of a debt instrument classified as available for sale financial asset increases and the increase can be objectively related to an event occurring after the impairment loss was recognised, the impairment loss is reversed through the statement of financial performance.
1.5.6.   
Inventories


Inventories are stated at the lower of cost and net realisable value. Cost is determined using the first-in, first-out (FIFO) method. The cost of finished goods and work in progress comprises raw materials, direct labour, other directly attributable costs and related production overheads (based on normal operating capacity). Net realisable value is the estimated selling price in the ordinary course of business, less the costs of completion and selling expenses. When inventories are held for distribution at no charge or for a nominal charge, they are measured at the lower of cost and current replacement cost. Current replacement cost is the cost the EU would incur to acquire the asset on the reporting date.
1.5.7.   
Pre-financing amounts


Pre-financing is a payment intended to provide the beneficiary with a cash advance, i.e. a float. It may be split into a number of payments over a period defined in the particular contract, decision, agreement or basic legal act. The float or advance is either used for the purpose for which it was provided during the period defined in the agreement or it is repaid. If the beneficiary does not incur eligible expenditure, they have the obligation to return the pre-financing advance to the EU. The amount of the pre-financing may be reduced (wholly or partially) by the acceptance of eligible costs (which are recognised as expenses).
Pre-financing is, on subsequent balance sheet dates, measured at the amount initially recognised on the balance sheet less eligible expenses (including estimated amounts where necessary) incurred during the period.
Interest on pre-financing is recognised as it is earned in accordance with the provisions of the relevant agreement. An estimate of the accrued interest revenue, based on the most reliable information, is made at the year-end and included on the balance sheet.
Other advances to Member States which originate from reimbursement by the EU of amounts paid as advances by the Member States to their beneficiaries (including ‘financial instruments under shared management’) are recognised as assets and presented under the pre-financing heading. Other advances to Member States are subsequently measured at the amount initially recognised on the balance sheet less a best estimate of the eligible expenses incurred by final beneficiaries, calculated on the basis of reasonable and supportable assumptions.
The EU contributions to the trust funds of the European Development Fund or other unconsolidated entities are also classified as pre-financing since their purpose is to give a float to the trust fund to allow it to finance specific actions defined under the trust fund’s objectives. The EU contributions to trust funds are measured at the initial amount of the EU contribution less eligible expenses, including estimated amounts where necessary, incurred by the trust fund during the reporting period and allocated to the EU contribution in accordance with the underlying agreement.
1.5.8.   
Exchange receivables and non-exchange recoverables


As the EU accounting rules require a separate presentation of exchange and non-exchange transactions, for the purpose of drawing up the accounts, receivables are defined as stemming from exchange transactions and recoverables are defined as stemming from non-exchange transactions, i.e. when the EU receives value from another entity without directly giving approximately equal value in exchange (for example recoverables from Member States related to own resources).
Receivables from exchange transactions meet the definition of financial instruments and are thus classified as loans and receivables and measured accordingly (see note 1.5.5). The financial instruments notes disclosures concerning receivables from exchange transactions include accrued revenue and deferred charges from exchange transactions, as they are not material. A general write-down based on past experience is made for outstanding recovery orders not already subject to a specific write-down.
Recoverables from non-exchange transactions are carried at original amount (adjusted for interest and penalties) less write-down for impairment. A write-down for impairment of recoverables from non-exchange transactions is established when there is objective evidence that the EU will not be able to collect all amounts due according to the original terms of recoverables from non-exchange transactions. The amount of the write-down is the difference between the asset’s carrying amount and the recoverable amount. The amount of the write-down is recognised in the statement of financial performance. A general write-down, based on past experience, is also made for outstanding recovery orders not already subject to a specific write-down. See note 1.5.14 concerning the treatment of accrued revenue at year-end. Amounts displayed and disclosed as recoverables from non-exchanges transactions are not financial instruments, as they do not arise from a contract that would give rise to a financial liability or equity instrument. However, in the notes to the financial statements recoverables from non-exchange transactions are disclosed together with receivables from exchange transactions where appropriate.
1.5.9.   
Cash and cash equivalents


Cash and cash equivalents are financial instruments and include cash at hand, deposits held at call or at short notice with banks and other short-term highly liquid investments with original maturities of three months or less.
1.5.10.   
Employee benefits


The accounting policy for employee benefits has been updated in line with the requirements of the revised accounting rule EAR 12 Employee Benefits, effective for periods beginning on or after 1 January 2018, which is based on the new IPSAS 39 (Employee Benefits) published in July 2016. The main change, arising from the revision of accounting rule 12, is the presentation of actuarial gains and losses as a movement in net assets instead of in the statement of financial performance.
Accounting for defined benefit plans is complex because actuarial assumptions and judgement are required to measure the obligation. In applying the revised accounting rule, the EU has reassessed the judgements used, in particular, as regards to the estimate of the ultimate cost of the benefit attributed to the employees. As a result of this exercise, the appropriateness of the use of the estimated active service period of the employee as the basis for attributing benefits to periods of service was confirmed. The benefits which the EU’s employees are entitled to are given under a single plan – although split in two schemes – and they must be treated similarly so as to give a fair presentation of the situation and reflect the economic reality.
The EU provides a set of benefits (emoluments and social security) to employees. For accounting purposes these have to be classified into short-term and post-employment benefits.

Short-term employee benefits

Short-term employee benefits are those benefits due to be settled before twelve months after the end of the reporting period in which employees rendered the service, such as salaries, annual and paid sick leaves, and other short-term allowances. Short-term employee benefits are recognised as an expense when the related service is provided. A liability is recognised for the amount expected to be paid if the EU has a present legal or constructive obligation to pay as a result of past service provided by the employee and the obligation can be estimated reliably.

Post-employment benefits

The EU grants a set of post-employment benefits to employees, which include retirement, invalidity and survival pensions, as well as medical coverage (see note 2.9).
The EU provides its staff with a post-employment benefit plan that includes:






i.


Pension Scheme of European Officials (PSEO): The benefits granted under this notionally funded (16) scheme relate to seniority, invalidity and survival, as well as, family allowances, death before retirement to those employees that work or worked in the EU Institutions, Agencies and other EU bodies or are survivors of deceased officials or pensioners. Staff contribute one third of the expected cost of these benefits from their salaries.










ii.


Joint Sickness Insurance Scheme (JSIS): Under this scheme, the EU provides health coverage for staff of the European Commission, Institutions, Agencies and other EU bodies through the reimbursement of medical expenses. The benefits granted to the ‘inactives’ of this scheme (i.e. pensioners, orphans, etc.) are classified as post-employment benefits.




The EU also provides post-employment benefits to members of the EU institutions via separate pension schemes. These are shown under the heading other retirement benefit schemes. Under these schemes the EU provides pension benefits to members of the Commission, Court of Justice and General Court, Court of Auditors, Council, European Parliament, Ombudsman, Data Protection Supervisor, Civil Service Tribunal. The EU provides health coverage to the members of the EU Institutions via the JSIS.
The above post-employment benefits qualify as defined benefit obligations of the EU and are calculated at each reporting date by estimating the amount of future benefit that employees have earned in the current and prior periods, discounting that amount and deducting the fair value of any plan assets. The calculation of defined benefit obligation is performed annually using the projected unit credit method. The present value of the defined benefit obligation is determined by discounting the estimated future cash outflows using interest rates of government bonds that are denominated in the currency in which the benefits will be paid, and that have terms to maturity approximating to the terms of the related pension liability.
The post-employment benefits provided to EU staff are incorporated in a single plan comprising both a pension scheme (PSEO) and a sickness insurance scheme (JSIS), with the right to coverage under the JSIS scheme being dependent on having acquired the right to coverage under the PSEO scheme. Under the terms of this single plan, as set out in the Staff Regulation, certain entitlements, such as the right to a deferred and reduced pension under the PSEO scheme, are acquired after 10 years of service. However, the entitlements acquired under the single plan by the employee’s subsequent service are materially higher than those initial entitlements as reflected by subsequent annually accrued pension rights.
Therefore, in order to depict the economic substance of the underlying transaction required by the faithful representation qualitative characteristic of financial reporting as outlined in both EAR 1 and the IPSAS Conceptual Framework, the service cost incurred is accrued on a straight-line basis over staff’s estimated active service period, i.e. the period from the date when service by the employee first leads to benefits under the plan (whether or not the benefits are conditional on further service) until the date when further service by the employee will lead to no material amount of further benefits under the plan, other than from further salary increases. This approach is applied consistently to the benefits provided for under the single plan.
Remeasurements of the net defined benefit liability comprise actuarial gains and losses and the return on plan assets, and are recognised immediately in net assets.
The EU recognises the net interest expense (income) and other expenses related to the defined benefit plans in the statement of financial performance within the caption ‘staff and pension costs’.
When benefits provided are changed or curtailed, the resulting change in benefits that relates to past service or the gain or loss on curtailment is recognised immediately in the statement of financial performance. Gains and losses on settlement are recognised when the settlement occurs. Past service cost is recognised immediately in the statement of financial performance, unless the changes are conditional on the employees remaining in service for a specified period of time.
1.5.11.   
Provisions


Provisions are recognised when the EU has a present legal or constructive obligation towards third parties as a result of past events, it is more likely than not that an outflow of resources will be required to settle the obligation, and the amount can be reliably estimated. Provisions are not recognised for future operating losses. The amount of the provision is the best estimate of the expenses expected to be required to settle the present obligation at the reporting date. Where the provision involves a large number of items, the obligation is estimated by weighting all possible outcomes by their associated probabilities (‘expected value’ method).
Provisions for onerous contracts are measured at the present value of the lower of the expected cost of terminating the contract and the expected net cost of continuing with the contract.
1.5.12.   
Financial liabilities


Financial liabilities are classified as financial liabilities at fair value through surplus or deficit, financial liabilities carried at amortised cost or as financial guarantee liabilities.
Borrowings are composed of borrowings from credit institutions and debts evidenced by certificates. They are recognised initially at fair value, being their issue proceeds (fair value of consideration received) net of transaction costs incurred, then subsequently carried at amortised cost using the effective interest method; any difference between proceeds, net of transaction costs, and the redemption value is recognised in the statement of financial performance over the period of the borrowings using the effective interest method. In the case of loans granted on borrowed funds, the effective interest method may not be applied to loans and borrowings, based on materiality considerations. The transaction costs incurred by the EU and then recharged to the beneficiary of the loan are directly recognised in the statement of financial performance.
Financial liabilities categorised at fair value through surplus or deficit include derivatives where fair value is negative. They follow the same accounting treatment as financial assets at fair value through surplus or deficit, see note 1.5.5.
Financial guarantee liabilities are initially recognised at fair value, being the premium received. Subsequently, financial guarantee liabilities are measured at the higher of the best estimate of the expenses expected to be required to settle the financial guarantee liability and the amount initially recognised less, when appropriate, cumulative amortisation. The EU recognises a financial guarantee liability when it receives consideration for granting of the guarantee, that is at market terms, or when the fair value of the guarantee can be measured reliably. In case no active market for a directly equivalent guarantee contract exists, the EU discloses the guarantee given as a contingent liability (see note 1.7.2) or - when it is more likely than not that an outflow of resources will be required to settle the obligation – the EU recognises a provision (see note 1.5.11).
Financial liabilities are classified as non-current liabilities, except for maturities less than 12 months after the balance sheet date.
EU trust funds that are considered as part of the Commission’s operational activities are accounted for in the Commission accounts and further consolidated in the EU annual accounts. Therefore, contributions from other donors to the EU trust funds fulfil the criteria of revenues from non-exchange transactions under conditions and they are presented as financial liabilities until the conditions attached to the contributions transferred are met, i.e. eligible costs are incurred by the trust fund. The trust fund is required to finance specific projects and return remaining funds at the time of winding-up. At the balance sheet date the outstanding contribution liabilities are measured at contributions received less the expenses incurred by the trust fund, including estimated amounts when necessary. For reporting purposes the net expenses are allocated to the contributions of other donors in proportion to net contributions paid as at 31 December. This allocation of contributions is only indicative. When the trust fund is wound up the actual split of remaining resources will be decided by the trust fund board.
1.5.13.   
Payables


A significant amount of the payables of the EU are unpaid cost claims from beneficiaries of grants or other EU funding (non-exchange transactions). They are recorded as payables for the requested amount when the cost claim is received. Upon verification and acceptance of the eligible costs, the payables are valued at the accepted and eligible amount.
Payables arising from the purchase of goods and services are recognised at invoice reception for the original amount and corresponding expenses are entered in the accounts when the supplies or services are delivered and accepted by the EU.
1.5.14.   
Accrued and deferred revenue and charges


Transactions and events are recognised in the financial statements in the period to which they relate. At year-end, if an invoice is not yet issued but the service has been rendered, the supplies have been delivered by the EU or a contractual agreement exists (e.g. by reference to a treaty), an accrued revenue will be recognised in the financial statements. In addition, at year-end, if an invoice is issued but the services have not yet been rendered or the goods supplied have not yet been delivered, the revenue will be deferred and recognised in the subsequent accounting period.
Expenses are also accounted for in the period to which they relate. At the end of the accounting period, accrued expenses are recognised based on an estimated amount of the transfer obligation of the period. The calculation of accrued expenses is done in accordance with detailed operational and practical guidelines issued by the Commission which aim at ensuring that the financial statements provide a faithful representation of the economic and other phenomena they purport to represent. By analogy, if payment has been made in advance for services or goods that have not yet been received, the expense will be deferred and recognised in the subsequent accounting period.
1.6.   STATEMENT OF FINANCIAL PERFORMANCE

1.6.1.   
Revenue



REVENUE FROM NON-EXCHANGE TRANSACTIONS

The vast majority of the EU’s revenue relates to non-exchange transactions:

GNI based resources and VAT resources

Revenue is recognised for the period for which the Commission sends out a call for funds to the Member States claiming their contribution. They are measured at their ‘called amount’. As VAT and GNI resources are based on estimates of the data for the budgetary year concerned, they may be revised as changes occur until the final data are issued by the Member States. The effect of a change in estimate is included when determining the net surplus or deficit for the period in which the change occurred.

Traditional own resources

Recoverables from non-exchange transactions and related revenues are recognised when the relevant monthly ‘A’ statements (including duties collected and amounts due that are guaranteed and not contested) are received from the Member States. At the reporting date, revenue collected by the Member States for the period but not yet paid to the Commission is estimated and recognised as accrued revenue. The quarterly ‘B’ statements (including duties neither collected nor guaranteed, as well as guaranteed amounts that have been contested by the debtor) received from the Member States are recognised as revenue less the collection costs to which they are entitled. In addition, a value reduction is recognised for the amount of the estimated recovery gap.

Fines

Revenue from fines is recognised when the EU’s decision imposing a fine has been taken and it is officially notified to the addressee. If there are doubts about the undertaking’s solvency, a value reduction on the entitlement is recognised. After the decision to impose a fine, the debtors have two months from the date of notification:






a)


either to accept the decision, in which case they must pay the fine within the time limit laid down and the amount is definitively collected by the EU;










b)


or not to accept the decision, in which case they lodge an appeal under EU law.




However, even if appealed, the fine must be paid within the time limit of three months laid down as the appeal does not have suspensory effect (Article 278 of the EU Treaty) or, under certain circumstances and subject to the agreement of the Commission’s Accounting Officer, the debtor may present a bank guarantee for the amount instead.
If the undertaking appeals against the decision, and has already provisionally paid the fine, the amount is disclosed as a contingent liability. However, since an appeal against an EU decision by the addressee does not have suspensory effect, the cash received is used to clear the recoverable. If a guarantee is received instead of payment, the fine remains as a recoverable. If it appears probable that the General Court may not rule in favour of the EU, a provision is recognised to cover this risk. If a guarantee had been given instead, then the recoverable outstanding is written-down as required. The accumulated interest received by the Commission on the bank accounts where received payments are deposited is recognised as revenue, and any contingent liability is increased accordingly.
Since 2010, all provisionally cashed fines are managed by the Commission in a specifically created fund (BUFI) and invested in financial instruments.

REVENUE FROM EXCHANGE TRANSACTIONS

Revenue from the sale of goods and services is recognised when the significant risk and rewards of ownership of the goods are transferred to the purchaser. Revenue associated with a transaction involving the provision of services is recognised by reference to the stage of completion of the transaction at the reporting date.

Interest revenue and expense

Interest revenue and expense are recognised in the statement of financial performance using the effective interest method. This is a method of calculating the amortised cost of a financial asset or a financial liability and of allocating the interest revenue or interest expense over the relevant period. When calculating the effective interest rate, the EU estimates cashflows considering all contractual terms of the financial instrument (for example prepayment options) but does not consider future credit losses. The calculation includes all fees and points paid or received between parties to the contract that are an integral part of the effective interest rate, transaction costs and all other premiums or discounts.
Once a financial asset or a group of similar financial assets has been written down as a result of an impairment loss, interest revenue is recognised using the rate of interest to discount the future cashflows for the purpose of measuring the impairment loss.

Revenue from dividends

Revenue from dividends and similar distributions is recognised when the right to receive payment is established.
1.6.2.   
Expenses


Expenses from non-exchange transactions account for the majority of the EU’s expenses. They relate to transfers to beneficiaries and can be of three types: entitlements, transfers under agreement and discretionary grants, contributions and donations.
Transfers are recognised as expenses in the period during which the events giving rise to the transfer occurred, as long as the nature of the transfer is allowed by regulation (Financial Regulation, Staff Regulations, or other regulation) or an agreement has been signed authorising the transfer; any eligibility criteria have been met by the beneficiary; and a reasonable estimate of the amount can be made.
When a request for payment or cost claim is received and meets the recognition criteria, it is recognised as an expense for the eligible amount. At year-end, incurred eligible expenses due to the beneficiaries but not yet reported are estimated and recorded as accrued expenses.
Expenses from exchange transactions arising from the purchase of goods and services are recognised when the supplies are delivered and accepted by the EU. They are valued at original invoice amount. Furthermore, at the balance sheet date expenses related to the service delivered during the period for which an invoice has not yet been received or accepted are estimated and recognised in the statement of financial performance.
1.7.   CONTINGENT ASSETS AND LIABILITIES

1.7.1.   
Contingent assets


A contingent asset is a possible asset that arises from past events and of which the existence will be confirmed only by the occurrence or non-occurrence of one or more uncertain future events not wholly within the control of the EU. A contingent asset is disclosed when an inflow of economic benefits or service potential is probable.
1.7.2.   
Contingent liabilities


A contingent liability is a possible obligation that arises from past events and of which the existence will be confirmed only by the occurrence or non-occurrence of one or more uncertain future events not wholly within the control of the EU; or a present obligation that arises from past events but is not recognised because: it is not probable that an outflow of resources embodying economic benefits or service potential will be required to settle the obligation or in the rare circumstances where the amount of the obligation cannot be measured with sufficient reliability.
1.8.   CASHFLOW STATEMENT

Cashflow information is used to provide a basis for assessing the ability of the EU to generate cash and cash equivalents, and its needs to utilise those cashflows.
The cashflow statement is prepared using the indirect method. This means that the economic result for the financial year is adjusted for the effects of transactions of a non-cash nature, any deferrals or accruals of past or future operating cash receipts or payments, and items of revenue or expense associated with investing cashflows.
Cashflows arising from transactions in a foreign currency are recorded in the EU’s reporting currency (Euro), by applying to the foreign currency amount the exchange rate between the euro and the foreign currency at the date of the cashflow.
The cashflow statement reports cashflows during the period classified by operating and investing activities (the EU does not have financing activities).
Operating activities are the activities of the EU that are not investing activities. These are the majority of the activities performed. Loans granted to beneficiaries (and the related borrowings, when applicable) are not considered as investing (or financing) activities as they are part of the general objectives and thus daily operations of the EU.
Investing activities are the acquisition and disposal of intangible assets and property, plant and equipment and of other investments which are not included in cash equivalents. Investing activities do not include loans granted to beneficiaries. The objective is to show the real investments made by the EU.
2.   NOTES TO THE BALANCE SHEET

ASSETS

2.1.   INTANGIBLE ASSETS







EUR million





Gross carrying amount at 31.12.2017




940






Additions




152






Disposals




(16)






Transfer between asset categories




0






Other changes




(2)






Gross carrying amount at 31.12.2018




1 073 






Accumulated amortisation at 31.12.2017




(535)






Amortisation charge for the year




(105)






Amortisation written back




1






Disposals




13






Transfer between asset categories



—





Other changes




(1)






Accumulated amortisation at 31.12.2018




(627)






Net carrying amount at 31.12.2018




446






Net carrying amount at 31.12.2017




405





The above amounts relate primarily to computer software.
2.2.   PROPERTY, PLANT AND EQUIPMENT

The Space assets category covers operational fixed assets related to the two EU space programmes: the Global Navigation Satellite Systems (GNSS), i.e. Galileo and EGNOS, and the Copernicus European Earth observation programme, while assets of the space systems which are not yet operational are included under the Assets under construction heading.
For Galileo, four new satellites have been added to the operational constellation in 2018 bringing it up to 22 satellites. The Galileo operational fixed assets, covering both satellites and ground installations, amounted to EUR 2 410 million at 31 December 2018, net of depreciation (2017: EUR 2 276 million). The remaining assets under construction totalling EUR 1 324 million (2017: EUR 1 026 million) include the four satellites launched in July 2018 for which the in-orbit testing had not yet been completed at the balance sheet date. The development of the Galileo system will continue until the system reaches its full operational capacity. When completed, the Galileo constellation will comprise 24 operational satellites and 6 spares.
Regarding Copernicus, two new satellites (Sentinel 5P & 3B) became operational in 2018, in addition to the five other Copernicus operational satellites, increasing the total value of Copernicus operational fixed assets to EUR 1 455 million (2017: EUR 1 140 million), net of accumulated depreciation. Another EUR 1 207 million related to Copernicus satellites is recognised as assets under construction (2017: EUR 1 443 million).
Fixed assets related to the European Geostationary Navigation Overlay System (EGNOS) ground infrastructure of EUR 52 million (2017: EUR 67 million) are also included under the Space assets heading. In addition, EGNOS assets under construction amount to EUR 130 million (2017: EUR 52 million).
The assets related to the EU space programmes are being built with the assistance of the European Space Agency (ESA).

Property, plant and equipment















EUR million




 


Land and Buildings


Space assets


Plant and Equipment


Furniture and Vehicles


Computer Hardware


Other


Finance leases


Assets under construction


Total





Gross carrying amount at 31.12.2017




5 456 




4 264 




597




266




675




309




2 787 




2 920 




17 273 






Additions




38




14




48




13




55




20




10




1 311 




1 509 






Disposals




(39)




(0)




(22)




(10)




(103)




(5)




(9)




(8)




(196)






Transfer between asset categories




202




982




0




0




5




3




(170)




(1 023 )




0






Other changes




(31)




0




17




0




2




0




1




0




(11)






Gross carrying amount at 31.12.2018




5 626 




5 259 




641




270




634




327




2 620 




3 199 




18 575 






Accumulated depreciation at 31.12.2017




(3 035 )




(780)




(502)




(188)




(553)




(226)




(1 244 )



 



(6 528 )






Depreciation charge for the year




(180)




(561)




(47)




(19)




(63)




(34)




(98)



 



(1 003 )






Depreciation written back



—


—



0




0




5




0



—


 



6






Disposals




10




0




14




9




96




5




7



 



142






Transfer between asset categories




(74)



—



(0)




(0)




(5)




(0)




79



 


—





Other changes




0




(0)




(5)




(0)




(1)




(0)




(1)



 



(7)






Accumulated depreciation at 31.12.2018




(3 279 )




(1 342 )




(540)




(198)




(521)




(255)




(1 257 )



 



(7 390 )






NET CARRYING AMOUNT AT 31.12.2018




2 347 




3 917 




101




72




113




72




1 363 




3 199 




11 185 






NET CARRYING AMOUNT AT 31.12.2017




2 422 




3 484 




95




78




122




83




1 543 




2 920 




10 745 





2.3.   INVESTMENTS ACCOUNTED FOR USING THE EQUITY METHOD

The participation of the EU, represented by the Commission, in the European Investment Fund (EIF) is treated as an associate using the equity method of accounting. The EIF is the EU’s financial institution specialising in providing risk capital and guarantees to Small and Medium-sized Entities (SMEs). The EIF is located in Luxembourg and operates as a private-public partnership, whose members are the European Investment Bank (EIB), the EU and a group of financial institutions. At 31 December 2018, the EU held 29,7 % of ownership interests in the EIF (2017: 29,7 %) and 29,7 % of the voting rights (2017: 29,7 %). In accordance with its statutes, the EIF is required to allocate to a statutory reserve at least 20 % of its annual net result until the aggregate reserve amounts to 10 % of subscribed capital. This reserve is not available for distribution.






EUR million European Investment Fund





Participation at 31.12.2017




581






Contributions



—





Dividends received




(3)






Share of net result




37






Share in the net assets




(24)






Participation at 31.12.2018




591





The following carrying amounts are attributable to the EU based on its percentage of participation:







EUR million




 


31.12.2018


31.12.2017




 


Total EIF


Total EIF





Assets




2 662 




2 488 






Liabilities




(674)




(532)






Revenue




291




263






Expenses




(167)




(153)






Surplus/(deficit)




124




110





Reconciliation of the above summarised financial information to the carrying amount of the interest held in the EIF is as follows:







EUR million




 


31.12.2018


31.12.2017





Net assets of the associate




1 988 




1 956 






EC ownership interests in EIF




29.7 %




29.7 %






Carrying amount




591




581





The EU, represented by the Commission, has paid in 20 % of its subscribed shares in the EIF capital at 31 December 2018, the amount uncalled being as follows:







EUR million




 


Total EIF capital


EU subscription





Total share capital




4 500 




1 337 






Paid-in




(900)




(267)






Uncalled




3 600 




1 070 





2.4.   FINANCIAL ASSETS









EUR million




 


Note


31.12.2018


31.12.2017





Non-current financial assets



 


 


 





Available for sale financial assets




2.4.1




13 657 




11 758 






Financial assets at fair value through surplus or deficit




2.4.2




14




16






Loans




2.4.3




51 560 




48 205 





 


 



65 231 




59 980 






Current financial assets



 


 


 





Available for sale financial assets




2.4.1




1 786 




1 873 






Financial assets at fair value through surplus or deficit




2.4.2




2




6






Loans




2.4.3




2 380 




6 776 





 


 



4 168 




8 655 






Total



 



69 398 




68 635 





2.4.1.   
Available for sale financial assets









EUR million




 


31.12.2018


31.12.2017





BUFI investments




1 888 




2 158 






ECSC in Liquidation




1 506 




1 658 






European Bank for Reconstruction and Development




188




188





 



3 582 




4 004 






Guarantee Funds for budgetary guarantees:



 


 





EFSI Guarantee Fund




5 000 




3 414 






Guarantee Fund for external actions




2 465 




2 199 






EFSD Guarantee Fund




9



—




 



7 474 




5 613 






Financial Instruments financed by the EU budget:



 


 





Horizon 2020




2 031 




1 730 






Risk Sharing Finance Facility




679




665






Connecting Europe Facility




540




482






EU SME Equity Facilities




464




508






European Fund for South East Europe




113




119






Risk Capital Operations




115




113






Other




444




397





 



4 386 




4 014 






Total




15 443 




13 632 






Non-current




13 657 




11 758 






Current




1 786 




1 873 





Out of the total of EUR 15 443 million, the EU holds available for sale financial assets in the form of debt securities (e.g. bonds) of EUR 13 993 million (2017: EUR 12 048 million), equity instruments of EUR 1 365 million (2017: EUR 1 333 million) and investments in the EIB Unitary Fund (money market fund) of EUR 85 million (2017: EUR 251 million). The debt securities and units in the EIB Unitary Fund are mainly used to temporarily invest the amounts allocated to the EU guarantee and risk-sharing instruments until they are used to satisfy the guarantee calls.

BUFI investments

Provisionally cashed fines related to competition cases are allocated to a dedicated fund (BUFI Fund - ‘Budget Fines’ Fund) and invested by the Commission in debt instruments categorised as available for sale financial assets.

ECSC in Liquidation

Regarding the European Coal and Steel Community (ECSC) in liquidation, all available for sale financial assets are debt securities denominated in EUR and quoted in an active market.

European Bank for Reconstruction and Development

The EU holds a financial investment in the capital of the European Bank for Reconstruction and Development (EBRD), in which at 31 December 2018 the number of shares held were 90 044 (2017: 90 044 shares), representing 3 % of the total subscribed share capital. The EU subscribed for a total amount of EUR 900 million of share capital, out of which EUR 713 million is currently uncalled. According to the Agreement establishing EBRD, the shareholders have some contractual restrictions such as the fact that the shares are not transferable and their redemption is capped at the maximum of the original purchase cost.
The EU measures the investment in EBRD at fair value. The original purchase cost is considered to be the best estimate of the fair value, in particular due to contractual restrictions referred to above. Although EBRD’s shares are not quoted on any stock exchange market, there are recent transactions in the investee’s equity (issuance of capital at par value), indicating that the cost is the best estimate of the fair value in this situation.

GUARANTEE FUNDS FOR BUDGETARY GUARANTEES


EFSI Guarantee Fund

Pursuant to the EFSI Regulation (Regulation (EU) 2015/2017), the EFSI Guarantee Fund has been established to provide a liquidity cushion against potential losses incurred by the EIB in relation to its financing and investment operations eligible for the EFSI EU guarantee under the EFSI Agreement - see note 4.1.1. The EFSI Guarantee Fund is financed by contributions from the EU budget. It is also endowed by returns on guarantee fund resources invested, revenues received by the EU as remuneration for the guarantee under the EFSI Agreement, and amounts recovered by the EIB from defaulting debtors in respect of previous guarantee calls. The fund is managed by the Commission, which is authorised to invest the assets of the EFSI Guarantee Fund on the financial markets in accordance with the principle of sound financial management following appropriate prudential rules. The EFSI Guarantee Fund started its operations in April 2016. In accordance with the EFSI Regulation, as amended in 2017 (Regulation (EU) 2017/2396) (17), it will be progressively provisioned and shall gradually reach EUR 9,1 billion, i.e. 35 % of the total EU EFSI guarantee obligations.

Guarantee Fund for external actions

The Guarantee Fund for external actions covers loans guaranteed by the EU budget, in particular EIB lending operations outside the EU financed from the EIB’s own resources and loans under macro-financial assistance (MFA) and Euratom loans outside the EU – see note 4.1.1. It is a long-term instrument (non-current part: EUR 2 275 million) managed by the EIB and intended to cover any defaulting loans guaranteed by the EU. The Fund is endowed by payments from the EU budget, the proceeds from interest on investments made from the Fund’s assets, and sums recovered from defaulting debtors for whom the Fund has had to activate its guarantee. The Fund should be maintained at a target amount corresponding to 9 % of the guaranteed loans outstanding at year-end. The difference between the target amount and the value of the Fund’s assets at year-end shall be covered from the EU budget in year N+2, while any surplus is paid back to the EU budget.

EFSD Guarantee Fund

Pursuant to the EFSD Regulation (Regulation (EU) 2017/1601) (18), the EFSD Guarantee Fund has been established to provide a liquidity cushion to be used in the event of a call on the Union guarantee given pursuant to the relevant EFSD guarantee agreements. The EFSD Guarantee Fund is financed by contributions from the EU budget and from contributions from the 11th EDF to the EU budget and voluntary contributions from Member States and other contributors. The fund is also endowed by returns on invested resources, amounts recovered from defaulting debtors, revenues and any other payments received by the EU in accordance with the EFSD guarantee agreements. The fund is managed directly by the Commission, which is authorised to invest the fund’s assets in accordance with the principle of sound financial management following appropriate prudential rules. The first EU budget contributions to the EFSD Guarantee Fund were received in August 2018. Total payments received in 2018 amount to EUR 275,1 million, of which EUR 9 million is invested in available for sale financial assets as at 31 December 2018, while another EUR 325 million (2017: EUR 275 million) have been committed but not yet paid and is included in the amount disclosed as RAL in note 5.1. The EFSD Guarantee Fund will be progressively provisioned and gradually reach EUR 750 million, i.e. 50 % of total future EFSD guarantee obligations covered by the EU budget, and may be further increased by other contributions.

FINANCIAL INSTRUMENTS FINANCED BY THE EU BUDGET


Horizon 2020

Under the EU Regulation establishing Horizon 2020 – the Framework Programme for Research and Innovation (2014-2020), new financial instruments have been established in order to enhance access to finance to entities engaged in research and innovation (R&I). These instruments are: the InnovFin Loan and Guarantee Service for R&I under which the Commission shares the financial risk related to a portfolio of new financing operations entered into by the EIB; the InnovFin SME Guarantee including the SME Initiative Uncapped Guarantee Instrument (SIUGI) – guarantee facilities managed by the EIF providing guarantees and counter-guarantees to the financial intermediaries for the new portfolios of loans (under SIUGI the Commission shares the financial risk related to the guarantee given with Member States, EIF and EIB); and the InnovFin Equity Facility for R&I providing for investments in venture capital funds and managed by the EIF.

Risk-Sharing Finance Facility

The Risk-Sharing Finance Facility (RSFF) is managed by the EIB and the Commission’s investment portfolio is used to provision financial risk for loans and guarantees given by the EIB to eligible research projects. In total, an EU budget of up to EUR 1 billion was allocated to the RSFF under the 2007-2013 MFF. Under the 2014-2020 MFF, there are no new budget contributions foreseen for the RSFF. The EU overall risk is limited to the amount it contributes to the Facility.

Connecting Europe Facility

Pursuant to Regulation (EU) No 1316/2013 (19), the Connecting Europe Facility (CEF) debt instrument has been established with the objective to facilitate infrastructure projects’ access to financing in the sectors of transport, telecommunications and energy. It is managed by the EIB under an agreement with the EU. The CEF debt financial instrument is the continuity of the Loan Guarantee Instrument for TEN-T projects (LGTT) and of the pilot phase of the Project Bond Initiative (PBI). The LGTT and the PBI Portfolio were merged into the CEF financial instrument with effect from 1 January 2016. It offers risk-sharing for debt financing in the form of senior and subordinated debt or guarantee as well as support for project bonds.

EU SME Equity Facilities

These are equity instruments financed by the COSME, the CIP and MAP programmes and the Technology Transfer Pilot Project, under the trusteeship of the EIF, supporting the creation and financing of EU SMEs in their early (start-up) and growth stages by investing in suitable specialised venture capital funds.
2.4.2.   
Financial assets at fair value through surplus or deficit











EUR million




Type of derivative


31.12.2018


31.12.2017




Notional amount


Fair value


Notional amount


Fair value





Foreign currency forward contract




476




2




634




6






Guarantee on equity portfolio




674




14




258




16






Total




1 150 




16




892




23






Non-current




674




14




258




16






Current




476




2




634




6





The EU enters into foreign currency forward contracts in order to hedge the foreign currency risk related to USD denominated debt securities held in the EFSI Guarantee Fund. Under the foreign currency forward contracts, the EU shall deliver the contractually agreed notional amount in foreign currency (‘pay leg’), as presented in the table above, and will receive the notional amount in EUR (‘receive leg’) at the maturity date. Such derivative contracts are measured at fair value at the balance sheet date and classified as either financial assets or financial liabilities at fair value through surplus or deficit depending on whether their fair value is positive or negative.
The EFSI guarantee given by the EU to the EIB Group in relation to the portfolios of equity investments is classified as a derivative financial instrument and accounted for as a financial asset or financial liability at fair value through surplus or deficit, see note 4.1.1. At 31 December 2018, the amount of the underlying equity investments disbursed by the EIB and EIF amounted to EUR 674 million and the fair value of the EU guarantee on the EFSI equity portfolios totalled EUR 14 million.

Fair value hierarchy of financial assets measured at fair value








EUR million




 


31.12.2018


31.12.2017





Level 1: Quoted prices in active markets




13 993 




11 983 






Level 2: Observable inputs other than quoted prices




275




510






Level 3: Valuation techniques with inputs not based on observable market data




1 191 




1 161 






Total




15 459 




13 654 





During the period there were no transfers between level 1 and level 2.

Reconciliation of financial assets measured using valuation techniques with inputs not based on observable market data (level 3)







EUR million





Opening balance at 1.1.2018




1 161 






Purchases, sales, issues and settlements




104






Gains or losses for the period in financial income or finance costs




(36)






Gains or losses in net assets




(37)






Transfers into level 3



—





Transfers out of level 3



—





Other



—





Closing balance at 31.12.2018




1 191 





2.4.3.   
Loans










EUR million




 


Note


31.12.2018


31.12.2017





Loans for financial assistance




2.4.3.1




53 873 




54 844 






Other loans




2.4.3.2




67




137






Total



 



53 939 




54 981 






Non-current



 



51 560 




48 205 






Current



 



2 380 




6 776 





2.4.3.1.   Loans for financial assistance












EUR million




 


EFSM


BOP


MFA


Euratom


ECSC in Liquidation


Total





Total at 31.12.2017




47 456 




3 114 




3 924 




250




100




54 844 






New loans




4 500 



—



515




50



—



5 065 






Repayments




(4 500 )




(1 350 )




(56)




(46)



—



(5 952 )






Exchange differences



—


—


—



(0)




(1)




(1)






Changes in carrying amount




(56)




(30)




5




0




(2)




(84)






Impairment



—


—


—


—


—


—





Total at 31.12.2018




47 400 




1 734 




4 388 




254




98




53 873 






Non-current




46 800 




200




4 309 




213



—



51 521 






Current




600




1 534 




79




41




98




2 351 





The nominal value of loans for financial assistance at 31 December 2018, including ECSC in Liquidation loans, total EUR 53 206 million (2017: EUR 54 093 million). The change in carrying amount corresponds to the change in accrued interests.
EFSM enables the granting of financial assistance to a Member State in difficulties or seriously threatened by severe difficulties caused by exceptional circumstances beyond its control. The assistance may take the form of a loan or credit line. The ECOFIN Council conclusions of 9 May 2010 restrict the facility to EUR 60 billion but the legal limit restricts the outstanding amount of loans or credit lines to the margin available under the own resources ceiling. Borrowings related to loans disbursed under the EFSM are guaranteed by the EU budget. It is not foreseen that the EFSM will engage in new financing programmes or enter into new loan facility agreements. During the year ended 31 December 2018, both beneficiary countries – Ireland and Portugal – have requested a maturity extension in respect to their loans falling due in 2018 for the amount of EUR 3,9 billion and EUR 0,6 billion, respectively.
The BOP facility, a policy-based financial instrument, provides medium-term financial assistance to Member States of the EU that have not adopted the Euro. It enables the granting of loans to Member States who are experiencing, or are seriously threatened by, difficulties in their balance of payments or capital movements. The maximum outstanding amount of loans granted under the instrument is limited to EUR 50 billion. Borrowings related to these BOP loans are guaranteed by the EU budget.
MFA is a form of financial aid extended by the EU to partner countries experiencing a balance of payment crisis. It takes the form of medium/long term loans or grants or an appropriate combination of both and generally complements financing provided in the context of an IMF-supported adjustment and reform program. These loans are guaranteed by the Guarantee Fund for external actions. During the year ended 31 December 2018, further disbursements of loans under MFA for a total amount of EUR 515 million were provided, being EUR 500 million to Ukraine and EUR 15 million to Georgia – see also note 4.1.2.
The European Atomic Energy Community (Euratom, represented by the Commission) lends money to both Member States and non-Member States, and to entities of both, to finance projects relating to energy installations. Guarantees from third-parties of EUR 254 million (2017: EUR 250 million) have been received to cover Euratom loans - see note 4.1.2.
ECSC in Liquidation loans are not loans for financial assistance but promissory notes in order to keep the cash flows in parallel with the borrowings. However, similar to the loans for financial assistance, they were granted on borrowed funds in accordance with articles 54 and 56 of the ECSC Treaty for project financing.

Loans effective interest rates (expressed as a range of interest rates)








 


31.12.2018


31.12.2017





Macro Financial Assistance (MFA)




0 % - 3,82 %




0 % - 4,54 %






Euratom




0,08 % - 5,76 %




0,08 % - 5,76 %






Balance of Payment (BOP)




2,88 % - 3,38 %




2,88 % - 3,38 %






European Financial Stability Mechanism (EFSM)




0,50 % - 3,75 %




0,62 % - 3,75 %






ECSC in Liquidation




5,23 % - 5,81 %




5,23 % - 5,81 %





2.4.3.2.   Other loans








EUR million




 


31.12.2018


31.12.2017





Loans with special conditions




64




78






ECSC in liquidation housing loans




2




4






Term deposits




0




55






Total




67




137






Non-current




38




61






Current




28




76





Nominal value of other loans at 31 December 2018 total EUR 617 million (2017: EUR 561 million).
Loans with special conditions are granted at preferential rates as part of co-operation with non-Member States.
Term deposits include mainly amounts with maturity between 3 and 12 months that do not meet the definition of cash equivalents.

Impairment on other loans












EUR million




 


31.12.2017


Additions


Reversals


Write-off


Other


31.12.2018





Loans with special conditions




8




1



—



(0)



—



8






Subrogated loans




432




147



—


—


—



579






Total




440




148



—



(0)



—



587





Subrogated loans are defaulted loans which were granted by the EIB and guaranteed by the EU budget, for which all rights have been subrogated to the EU following the payment from the Guarantee Fund for external actions or the EFSI Guarantee Fund. These loans are fully impaired for an amount of EUR 579 million (2017: EUR 432 million). Guarantee calls, which occurred in 2018, were partially covered by financial provisions made in previous years. Under the relevant agreements between the EU and the EIB, recovery proceedings are undertaken by the EIB on behalf of the EU with an aim to recover any sums due.
2.5.   PRE-FINANCING









EUR million




 


Note


31.12.2018


31.12.2017





Non-current pre-financing



 


 


 





Pre-financing




2.5.1




21 814 




21 939 






Other advances to Member States




2.5.2




4 122 




3 018 






Contribution to Trust Funds



 



71




64





 


 



26 006 




25 022 






Current pre-financing



 


 


 





Pre-financing




2.5.1




21 572 




22 361 






Other advances to Member States




2.5.2




2 396 




1 645 





 


 



23 968 




24 005 






Total



 



49 974 




49 027 





The level of pre-financing amounts in the various programmes must be sufficient to ensure the necessary funding for the beneficiary to start the project, while also safeguarding the financial interests of the EU and taking into consideration legal, operational and cost-effectiveness constraints. The increase in the total amount of pre-financing mainly relates to the increase in ‘other advances to Member States’ (see note 2.5.2).
2.5.1.   
Pre-financing













EUR million




 


Gross amount


Cleared via accruals


Net amount at 31.12.2018


Gross amount


Cleared via accruals


Net amount at 31.12.2017





Shared management



 


 


 


 


 


 





EAFRD & other rural development instruments




3 743 



 



3 743 




3 735 



—



3 735 






ERDF & CF




18 088 




(3 461 )




14 627 




20 561 




(5 678 )




14 883 






ESF




6 548 




(1 147 )




5 401 




6 792 




(1 182 )




5 610 






Other




4 684 




(2 498 )




2 186 




5 037 




(2 267 )




2 770 





 



33 063 




(7 105 )




25 958 




36 125 




(9 127 )




26 998 






Direct Management



 


 


 


 


 


 





Implemented by:



 


 


 


 


 


 





Commission




12 531 




(8 262 )




4 269 




12 165 




(8 331 )




3 834 






EU executive agencies




15 012 




(9 540 )




5 472 




13 843 




(8 749 )




5 094 






Trust funds




585




(433)




152




440




(212)




228





 



28 127 




(18 234 )




9 893 




26 447 




(17 292 )




9 155 






Indirect Management



 


 


 


 


 


 





Implemented by:



 


 


 


 


 


 





Other EU agencies & bodies




762




(207)




555




723




(148)




575






Third countries




1 546 




(879)




667




1 586 




(956)




630






International organisations




7 684 




(5 053 )




2 631 




9 000 




(5 879 )




3 121 






Other entities




9 107 




(5 426 )




3 681 




7 753 




(3 933 )




3 820 





 



19 099 




(11 565 )




7 534 




19 062 




(10 916 )




8 146 






Total




80 289 




(36 904 )




43 386 




81 635 




(37 335 )




44 300 






Non-current




21 814 



—



21 814 




21 939 



—



21 939 






Current




58 476 




(36 904 )




21 572 




59 696 




(37 335 )




22 361 





Pre-financing represents money paid out, and thus implementation of payment appropriations. As explained in note 1.5.7, these are advances and so not yet expensed. Thus while pre-financing reduces outstanding RAL (see note 5.1) it represents expenses still to be recognised in the statement of financial performance.
For shared management, almost all pre-financing amounts relate to the current programming period. There is an initial pre-financing which will not be cleared before the end of the period and is accounted for as non-current. There is also an annual pre-financing which is cleared on an annual basis and is accounted for as current. EUR 10 billion of new pre-financing has been paid in 2018. The pre-financing amounts related to shared management are stable compared to 2017 except for a decrease in the amounts under ‘’other’’ shared management. This relates to the European Union Solidarity Fund (amounts for support to reconstruction in Italy following the 2016/2017 earthquakes there). These amounts were paid as pre-financing in 2017 and expensed in 2018.
For direct management, the pre-financing amounts relate mainly to Horizon 2020 and the Connecting Europe Facility.
For indirect management, the pre-financing covers mainly internal policies programmes like Erasmus, Galileo and EGNOS, but also instruments related to external relations like ENI (European Neighbourhood Instrument), DCI (Development Cooperation Instrument) and Humanitarian Aid.

Guarantees received in respect of pre-financing

These are guarantees that the Commission requests from beneficiaries that are not Member States in certain cases when paying out advance payments (pre-financing). There are two values to disclose for this type of guarantee, the ‘nominal’ and the ‘on-going’ values. For the nominal value, the generating event is linked to the existence of the guarantee. For the on-going value, the guarantee’s generating event is the pre-financing payment and/or subsequent clearings. At 31 December 2018 the nominal value of guarantees received in respect of pre-financing amounted to EUR 516 million while the on-going value of those guarantees was EUR 420 million (2017: EUR 620 million and EUR 462 million respectively).
Certain pre-financing amounts paid out under the 7th Research Framework Programme for research and technological development (FP7) and under Horizon 2020 are effectively covered by a Participants Guarantee Fund (PGF). The PGF is a mutual benefit instrument set up to cover the risks relating to non-payment of amounts by the beneficiaries during the implementation of the indirect actions of FP7 and Horizon 2020. All participants of indirect actions receiving a grant from the EU contribute 5 % of the total amount received to the PGF’s capital.
At 31 December 2018, pre-financing amounts covered by the PGF totalled EUR 2 billion (2017: EUR 1,9 billion). The EU (represented by the Commission) acts as an executive agent of the participants of the PGF, but the fund is owned by the participants.
At year-end, the PGF had total assets of EUR 2,1 billion (2017: EUR 2,0 billion). The assets of the PGF also include financial assets that are managed by the Directorate-General for Economic and Financial Affairs of the Commission. As the PGF is a separate entity the assets of the fund are not consolidated in these EU annual accounts.
2.5.2.   
Other advances to Member States









EUR million




 


31.12.2018


31.12.2017





Advances to Member States for financial instruments under shared management




3 675 




2 768 






Aid Schemes




2 843 




1 895 






Total




6 518 




4 663 






Non-current




4 122 




3 018 






Current




2 396 




1 645 






Advances to Member States for financial instruments under shared management

Under the framework of the European Structural and Investment Funds (ESIF) programmes, it is possible to make advance payments from the EU budget to Member States so as to allow them to contribute to financial instruments (i.e. loans, equity investments or guarantees). These financial instruments are set up and managed under the responsibility of the Member States, not the Commission. Nevertheless, monies that are unused by these instruments at year-end are the property of the EU (as with all pre-financing) and are thus treated as an asset on the EU’s balance sheet.

2014-2020 Period:

Under cohesion policy out of EUR 5 790 million paid, it is estimated that EUR 3 590 million was unused at 31 December 2018. This includes the contribution of the Member States to the SME Initiative, an instrument aimed at stimulating additional lending by the banking sector to SMEs (EUR 1 213 million paid, out of which EUR 391 million is estimated as unused).
For rural development, EUR 83 million remained unused at year-end.

2007-2013 Period:

All amounts related to the cohesion policy are considered to have been either implemented or re-allocated to other measures, therefore no assets remain on the balance sheet at 31 December 2018. It should be noted that the actual implementation by the various instruments will be reviewed as part of the closure process of the programmes.

Aid Schemes

Similar to the above, advances paid by the Member States for various aid schemes (state aid, market measures of EAGF or investment measures of EAFRD) that were not used at year-end are recorded as assets (advances) on the EU’s balance sheet. The Commission has estimated the value of these advances based on information provided by the Member States; the resulting amounts are included under the Aid Schemes sub-heading above.

2014-2020 Period:

The unused amounts at year-end were estimated at EUR 1 477 million for cohesion policy and EUR 1 171 million for agriculture and rural development.

2007-2013 Period:

It is estimated that EUR 195 million paid in the context of rural development remains unused at the end of 2018.
2.6.   EXCHANGE RECEIVABLES AND NON-EXCHANGE RECOVERABLES









EUR million




 


Note


31.12.2018


31.12.2017





Non-current



 


 


 





Recoverables from non-exchange transactions




2.6.1




397




594






Receivables from exchange transactions




2.6.2




19




17





 


 



416




611






Current



 


 


 





Recoverables from non-exchange transactions




2.6.1




22 212 




11 065 






Receivables from exchange transactions




2.6.2




2 036 




689





 


 



24 248 




11 755 






Total



 



24 664 




12 366 





2.6.1.   
Recoverables from non-exchange transactions










EUR million




 


Note


31.12.2018


31.12.2017





Non-current



 


 


 





Member States




2.6.1.1




397




594





 


 



397




594






Current



 


 


 





Member States




2.6.1.1




10 900 




6 190 






Competition fines




2.6.1.2




9 727 




4 225 






Accrued income and deferred charges




2.6.1.3




1 511 




570






Other recoverables



 



74




81





 


 



22 212 




11 065 






Total



 



22 609 




11 659 





2.6.1.1.   Recoverables from Member States








EUR million




 


31.12.2018


31.12.2017





TOR A accounts




5 609 




3 113 






TOR separate accounts




1 612 




1 617 






Own resources to be received




2 758 




46






Impairment




(991)




(997)






Other




86




56






Own resources recoverables




9 075 




3 836 






European Agricultural Guarantee Fund (EAGF)




1 708 




2 280 






European Agricultural Fund for Rural Development (EAFRD)




859




955






Temporary Rural Development Instrument (TRDI)




13




16






Special Accession Programme for Agriculture and Rural Development (SAPARD)




82




136






Impairment




(788)




(804)






EAGF and rural development recoverables




1 875 




2 583 






Pre-financing recovery expected




145




182






VAT paid and recoverable




45




64






Other recoverables from Member States




158




120






Total




11 297 




6 784 






Non-current




397




594






Current




10 900 




6 190 





The non-current amounts due from Member States relate mainly to non-executed conformity clearance decisions for the European Agricultural Guarantee Fund (EAGF) as well as for the European Agricultural Fund for Rural Development (EAFRD). The amounts related to these decisions are being recovered in annual instalments.

Own resources recoverables

’A accounts’ refers to the monthly statements where the Member States communicate the established Traditional Own Resources (TOR) entitlements to the Commission but not yet recovered. TOR are composed of customs duties and sugar levies, collected by Member States on behalf of the Commission.
For 2018, the ‘A accounts’ figure contains TOR from the infringement case explained below as well as from inspection reports. The increase in the heading ‘A accounts’ is driven by these cases. As late payment interest of EUR 1,3 billion is applicable, those amounts are therefore also reported in these annual accounts (see notes 2.6.2 and 3.7).
Concerning the infringement case, on 8 March 2018, the European Commission sent a letter of formal notice (Infringement No 2018/2008) to the United Kingdom (UK) because it refused to make customs duties available to the EU budget, as required by EU law. In view of a lack of a satisfactory reply from the UK, the Commission sent a Reasoned Opinion on 24 September 2018 and decided on 19 December 2018 to refer the case to the Court of Justice of the EU. The UK replied to the Reasoned Opinion on 11 February 2019. This reply was again considered unsatisfactory and the Commission confirmed on 6 March 2019 its decision to refer the infringement to the Court of Justice of the EU. The application was lodged on 7 March 2019. A 2017 OLAF report had found that importers in the UK evaded a large amount of customs duties by using fictitious and false invoices and incorrect customs value declarations at importation. Based on a methodology developed by OLAF and JRC and on the information available, the Commission estimates that the infringement of EU legislation by the UK resulted, during the period November 2011 to October 2017, in losses to the EU budget amounting to EUR 2,1 billion (net, i.e. after deducting the collection costs to be retained by the UK from the gross amount of EUR 2,7 billion). The UK does not agree on the methodology used by the Commission to estimate the above losses.
In addition, the Commission included in the accounts a management estimate of EUR 0,7 billion (of which the largest part being applicable interest) for established customs duties. The UK does not agree with this amount.
‘Separate accounts’ refers to established entitlements that have not been included in the ‘A accounts’, because they have not been recovered by Member States and no security has been provided (or if security has been provided but the amounts are contested). These entitlements are subject to impairment based on information provided every year by the Member States.
‘Own resources to be received’ refers to recoverables as a result of the amending budget No 6/2018 adopted on 12 December 2018. The amounts were to be entered by Member States on the first working day of January 2019.

EAGF and Rural Development recoverables

This item primarily covers the amounts owed by Member States at 31 December 2018, as declared and certified by the Member States as at 15 October 2018. An estimation is made for the recoverables arising after this declaration and up to 31 December 2018. The Commission also estimates a write-down for the amounts owed by beneficiaries that are unlikely to be recovered. The fact that such an adjustment is made does not mean that the Commission is waiving future recovery of these amounts. A deduction of 20 % is also included in the adjustment and corresponds to what Member States are allowed to retain to cover administrative costs.
2.6.1.2.   Recoverables from competition fines








EUR million




 


31.12.2018


31.12.2017





Recoverable from fines gross amount




13 022 




7 679 






Provisional payments




(3 131 )




(3 282 )






Impairment




(164)




(172)






Total




9 727 




4 225 






Non-current



—


—





Current




9 727 




4 225 





The provisional payments mainly relate to cash receipts from companies that have nevertheless initiated an appeal or still have the option to appeal against the fine decisions at EU courts. A contingent liability is disclosed for the possibility to pay back these amounts to the companies (see note 4.1.4).
Fined companies who have launched or are planning to launch an appeal have an option to either make provisional payments or to provide bank guarantees to the Commission. For EUR 9 354 million (2017: EUR 4 004 million) of fines not paid at year-end, the Commission has accepted guarantees.
The amounts written down due to impairment reflect the Commission’s case-by-case assessment of fines amounts not cashed or not covered with a guarantee, which the Commission expects not to recover.
The increase in the competition fines recoverables is mainly due to two significant fines (totalling EUR 5 339 million) where the companies concerned covered the fine with Commission accepted bank guarantees.
2.6.1.3.   Accrued income and deferred charges








EUR million




 


31.12.2018


31.12.2017





Other accrued income




1 240 




328






Deferred charges relating to non-exchange transactions




272




241






Total




1 511 




570






Non-current



—


—





Current




1 511 




570





Other accrued income includes EUR 1 146 million that the Commission expects to recover from the Member States in the area of cohesion. The recovery will be made as a result of the examination and acceptance of the annual accounts submitted by the Member States on 15 February 2019. This procedure for the acceptance of Member States’ annual accounts has been introduced for the first time in the cohesion area for the programming period 2014-2020.
2.6.2.   
Receivables from exchange transactions









EUR million




 


31.12.2018


31.12.2017





Non-current



 


 





Other receivables




19




17





 



19




17






Current



 


 





Customers




232




241






Impairment on receivables from customers




(143)




(141)






Deferred charges relating to exchange transactions




243




259






Other




1 704 




331





 



2 036 




689






Total




2 055 




707





The receivables under the heading other contain EUR 1,4 billion of accrued late payment interest on own resources out of which EUR 1,3 billion relate to the cases already mentioned in note 2.6.1.1.
2.7.   INVENTORIES








EUR million




 


31.12.2018


31.12.2017





Scientific materials




52




45






Other




21




250






Total




73




295





2.8.   CASH AND CASH EQUIVALENTS









EUR million




 


Note


31.12.2018


31.12.2017





Accounts with Treasuries and Central Banks



 



12 932 




20 078 






Current accounts



 



79




152






Imprest accounts



 



5




5






Transfers (cash in transit)



 



0




0






Bank accounts for budget implementation



2.8.1



13 017 




20 236 






Cash belonging to financial instruments



2.8.2



2 377 




1 608 






Cash relating to fines



2.8.3



1 438 




1 234 






Cash relating to other institutions, agencies and bodies



 



1 167 




999






Cash relating to trust funds



 



114




34






Total



 



18 113 




24 111 





2.8.1.   
Bank accounts for budget implementation


This heading covers the funds which the Commission keeps in its bank accounts in each Member State and EFTA country (treasury or central bank), as well as in commercial bank current accounts, imprest accounts and petty cash. The treasury balance at the end of 2018 is due to the following main elements:






—


As regards own resources, the end of year treasury balance includes EUR 0,75 billion paid in advance by some of the Member States in relation to amending budget 6 adopted in 2018.










—


An amount of EUR 1,4 billion of fines imposed by the Commission for breach of competition rules, definitively cashed in 2018 and not yet included in any amending budget is also part of the year-end treasury balance.










—


The treasury balance also includes assigned revenue and other payment appropriations of EUR 7,4 billion.




2.8.2.   
Cash belonging to financial instruments


Amounts shown under this heading primarily concern cash equivalents managed by fiduciaries on behalf of the Commission for the purpose of implementing particular financial instrument programmes funded by the EU budget and cash and cash equivalents held in the guarantee funds relating to budgetary guarantees (see note 2.4.1). The cash belonging to financial instruments and guarantee funds can only be used in the programmes concerned.
2.8.3.   
Cash relating to fines


This is cash received in connection with fines issued by the Commission for which the case is still open. These amounts are kept in specific deposit accounts that are not used for any other activities. Where an appeal has been lodged or when it is unknown if an appeal will be made by the other party, the underlying amount is shown as contingent liability in note 4.1.4.
Since 2010, all new provisionally cashed fines are managed by the Commission in the BUFI fund and invested in financial instruments categorised as available for sale (see note 2.4.1).

LIABILITIES

2.9.   PENSION AND OTHER EMPLOYEE BENEFITS


Net employee benefit scheme liability











EUR million




 


Pension Scheme of European Officials


Other retirement benefit schemes


Joint Sickness Insurance Scheme


31.12.2018 Total


31.12.2017 Total





Defined Benefit Obligation




70 017 




1 865 




8 990 




80 871 




73 560 






Plan assets




N/A




(119)




(296)




(415)




(438)






Net liability




70 017 




1 746 




8 694 




80 456 




73 122 





The increase in the total employee benefits liability is primarily due to an increase in the net liability of the Pension Scheme of European Officials. The rights accrued during the year due to service are higher than the benefits paid out during the year. In addition to this, there is an annual interest cost (unwinding of the liability discounting) as well as actuarial losses from experience where a significant amount relates to the improvement mentioned in note 2.9.1.
2.9.1.   
Pension Scheme of European Officials


This defined benefit obligation represents the present value of expected future payments that the EU is required to make so as to settle the pension obligations resulting from employee service in the current and prior periods. The scheme is ongoing, and as such, all payments required to be made from the scheme on an annual basis are included in the EU budget each year.
In accordance with Article 83 of the Staff Regulations, the payment of the benefits provided for in the staff pension scheme constitutes a charge to the EU’s budget. The scheme is notionally funded, and the Member States guarantee the payment of these benefits collectively. A compulsory pension contribution is deducted from the basic salaries of active members, currently 10,0 %. These contributions are treated as budget revenue of the year and contribute to the funding of EU expenditure in general, see also note 3.6.
The liabilities of the pension scheme were assessed on the basis of the number of staff and retired staff at 31 December 2018 and on the rules of the Staff Regulations applicable at this date. This valuation was carried out in accordance with the methodology of IPSAS 39 (and therefore also EU accounting rule 12). As was already noted in the 2017 annual accounts, the relevant Commission services have been working to strengthen data collection methods, as well as improving assumptions and calculation methods. One result of this work has been a more precise valuation of the liability in relation to the pensions of surviving persons (i.e. where the member is deceased) using the most up to date actuarial practice. The impact of this improved method on the 2018 liability is a EUR 2,1 billion increase. Had this method been used in 2017, that liability would have been EUR 2,3 billion higher compared to the previous method used.
2.9.2.   
Other retirement benefit schemes


This refers to the liability relating to the pension obligations towards Members and former Members of the Commission, the Court of Justice (and General Court) and the Court of Auditors, the Council, the Ombudsman, the European Data Protection Supervisor, and the European Union Civil Service Tribunal. Also included under this heading is a liability relating to the pensions of Members of the European Parliament.
2.9.3.   
Joint Sickness Insurance Scheme


In addition to the above retirement benefit schemes, a valuation is made for the estimated liability that the EU has regarding the Joint Sickness Insurance Scheme (JSIS) in relation to healthcare costs which must be paid during post-activity periods (net of their contributions). As stated in note 1.5.10, the calculation of this liability takes account of the full active service period, ensuring that both the pension and the sickness insurance schemes of the staff’s post-employment plan are accounted for consistently. Taking into account the obligation to faithfully present the economic substance of the underlying situation as required by both EAR and IPSAS, we have not interpreted IPSAS 39 in a stricter sense when attributing the benefits to the periods of service. If one were to accrue the service cost for the JSIS scheme fully over 10 years for all officials, as opposed to the period of active service of the employee, the impact of such an approach on the defined benefit obligation at year-end would be an increase of EUR 3 billion. However, as already indicated, this stricter approach would not be compatible with the qualitative characteristic of faithful representation, and thus would not be deemed to provide reliable information in accordance with EAR 1 and the IPSAS Conceptual Framework. This estimate is highly sensitive to the evolution of current staff administrative status (in particular the number of fixed-term contract members assumed to become officials in the future).

Movement in present value of employee benefits defined benefit obligation

The present value of the defined benefit obligation is the discounted expected future payments required to settle the obligation resulting from employee service in the current and prior periods.
An analysis of the current year movement in the defined benefit obligation is presented below:









EUR million




 


Pension Scheme of European Officials


Other retirement benefit schemes


Joint Sickness Insurance Scheme


Total





Present value as at 31.12.2017




63 951 




1 854 




7 756 




73 560 






Recognised in statement of financial performance



 


 


 


 





Current Service Cost




2 716 




87




270




3 074 






Interest cost




1 215 




32




155




1 402 






Recognised in net assets



 


 


 


 





Remeasurements in employee benefits liabilities



 


 


 


 





Actuarial (gains)/losses from experience




3 380 




(15)




4




3 369 






Actuarial (gains)/losses from demographic assumptions



—



1



—



1






Actuarial (gains)/losses from financial assumptions




251




(36)




901




1 115 






Other



 


 


 


 





Benefits paid




(1 496 )




(58)




(96)




(1 650 )






Present value as at 31.12.2018




70 017 




1 865 




8 990 




80 872 





Current service cost is the increase in the present value of the defined benefit obligation arising from current members’ service in the current period.
Interest cost refers to the interest cost i.e. the increase during the period in the present value of the defined benefit obligation because the benefits are one period closer to settlement.
Actuarial gains and losses from experience refer to the effects of differences between the previous actuarial assumptions for 2018 and what has actually occurred in 2018. This amount includes the improvement mentioned in note 2.9.1.

Actuarial gains and losses from actuarial assumptions (demographic and financial like discount rates and expected salary increases) arise where these assumptions are updated in order to reflect changes in the underlying conditions.
Benefits (for example, pensions or medical cost reimbursements) are paid during the year according to the rules of the scheme. These benefits paid lead to a decrease in the defined benefit obligation.

Plan assets









EUR million




 


Other retirement benefit schemes


Joint Sickness Insurance Scheme


Total





Present value as at 31.12.2017




137




301




438






Net movement in plan assets




(18)




(5)




(23)






Present value as at 31.12.2018




119




296




415






Actuarial assumptions - employee benefits

The principle actuarial assumptions used in the valuation of the two main employee benefit schemes of the EU are shown below:







 


Pension Scheme of European Officials


Joint Sickness Insurance Scheme





2018



 


 





Nominal discount rate




1,9 %




2,0 %






Expected inflation rate




1,4 %




1,5 %






Real discount rate




0,5 %




0,5 %






Expected rate of salary increases




1,9 %




1,8 %






Medical cost trend rates




N/A




3,0 %






Retirement age




63/64/66




63/64/66






2017



 


 





Nominal discount rate




1,9 %




2,0 %






Expected inflation rate




1,5 %




1,6 %






Real discount rate




0,4 %




0,4 %






Expected rate of salary increases




1,8 %




1,7 %






Medical cost trend rates




N/A




3,0 %






Retirement age




63/64/66




63/64/66





Mortality rates for 2017 and 2018 are based on the EU Civil Servants Life Table - EULT 2018.
The nominal discount rate is determined as the value of the Euro zero-coupon yield (with a maturity of 20 years as of December 2018 for the Pension Scheme of European Officials (PSEO), and 25 years for the Joint Sickness Insurance Scheme). The inflation rate used is the expected inflation rate over the equivalent period. It must be determined empirically, based on prospective values as expressed by index-linked bonds on the European financial markets. The real discount rate is calculated from the nominal discount rate and the expected long-term inflation rate.

Sensitivity analyses

The sensitivity analysis is based on simulations which change, ceteris paribus, the value of the concerned assumptions and observing how the model reacts.

Joint Sickness Insurance Scheme sensitivity

A ten basis point change in assumed medical cost trend rates would have the following effects:









EUR million




 


2018


2017




 


Increase 0,1 %


Decrease 0,1 %


Increase 0,1 %


Decrease 0,1 %





The aggregate of the current service cost and interest cost components of net periodic post-employment medical costs




12




(12)




11




(11)






Defined benefit obligation




253




(246)




220




(213)





A ten basis point (0,1 %) change in the assumed discount rate would have the following effects:









EUR million




 


2018


2017




 


Increase 0,1 %


Decrease 0,1 %


Increase 0,1 %


Decrease 0,1 %





Defined benefit obligation




(219)




226




(188)




194





A ten basis point (0,1 %) change in expected salary increases would have the following effects:









EUR million




 


2018


2017




 


Increase 0,1 %


Decrease 0,1 %


Increase 0,1 %


Decrease 0,1 %





Defined benefit obligation




(26)




25




(25)




24





A one-year change in assumed retirement age would have the following effects:









EUR million




 


2018


2017




 


One year increase


One year decrease


One year increase


One year decrease





Defined benefit obligation




(91)




54




(82)




44






Pension Scheme of European Officials sensitivity

A ten basis point (0,1 %) change in the assumed discount rate would have the following effects:









EUR million




 


2018


2017




 


Increase 0,1 %


Decrease 0,1 %


Increase 0,1 %


Decrease 0,1 %





Defined benefit obligation




(1 434 )




1 478 




(1 281 )




1 319 





A ten basis point (0,1 %) change in expected salary increases would have the following effects:









EUR million




 


2018


2017




 


Increase 0,1 %


Decrease 0,1 %


Increase 0,1 %


Decrease 0,1 %





Defined benefit obligation




1 427 




(1 388 )




1 313 




(1 192 )





A one-year change in assumed retirement age would have the following effects:









EUR million




 


2018


2017




 


One year increase


One year decrease


One year increase


One year decrease





Defined benefit obligation




(573)




645




(496)




639





2.10.   PROVISIONS













EUR million




 


Amount at 31.12.2017


Additional provisions


Unused amounts reversed


Amounts used


Transfer between categories


Change in estimation


Amount at 31.12.2018





Legal cases:



 


 


 


 


 


 


 





Agriculture




49



270



(2)




(47)



—


—



270






Cohesion




20



—



(20)



—


—


—



(0)






Other




120



3



(19)




(2)



—



(1)




100






Nuclear site dismantlement




1 934 



—


—



(34)



—



32




1 933 






Financial




1 115 



590



(7)




(149)



—



2




1 551 






Fines




27



—



(27)



—


—


—


—





Other




272




38




(38)




(18)



—



24




278






Total




3 538 




901




(115)




(249)



—



57




4 132 






Non-current




2 880 




704




(38)




(52)




(272)




59




3 281 






Current




659




197




(77)




(197)




272




(2)




852





Provisions are reliably estimated amounts, arising from past events, that will probably have to be paid by the EU budget in the future.

Legal cases

This is the estimate of amounts that will probably have to be paid out after the year-end in relation to a number of on-going legal cases.

Nuclear site dismantlement

As of 2017 the basis for the provision was updated as per the ‘JRC Decommissioning & Waste Management Programme Strategy (D&WMP) – Updated in 2017’. The review of the strategy, along with budget and staff needs, was conducted together with the independent D&WMP Expert Group. It represents the best available estimate of the budget and staff needed to complete the decommissioning of the JRC sites of Ispra, Geel, Karlsruhe and Petten.
In accordance with the EU accounting rules, this provision is indexed for inflation and then discounted to its net present value (using the Euro swap curve). At 31 December 2018, this resulted in a provision of EUR 1 933 million, split between amounts expected to be used in 2018 (EUR 31 million) and afterwards (EUR 1 902 million).
It must be noted that major uncertainties, inherent to the long term planning of nuclear decommissioning, could affect this estimate, which could significantly increase in the future. The main sources of uncertainty are related to the end state of the decommissioned site, nuclear materials, waste management and disposal aspects, incomplete or lacking definition of national regulatory frames, complicated and time-consuming licensing process and future developments of the decommissioning industrial market.

Financial provisions

These concern mainly provisions, which represent the estimated losses that will be incurred in relation to the guarantees given under different financial instruments, where entrusted entities are empowered to issue guarantees in their own name but on behalf of and at the risk of the EU. The financial risk of the EU linked to the guarantees is capped and financial assets are gradually provisioned to cover for the future guarantee calls. This heading also includes provisions for outstanding loans to Syria issued by the EIB under its external lending mandate and thus guaranteed by the EU via the Guarantee Fund for external actions. Non-current financial provisions are discounted to their net present value.
The increase of the financial provision relates to the increase of the volume of guaranteed operations under H2020 and COSME financial instruments.
2.11.   FINANCIAL LIABILITIES









EUR million




 


Note


31.12.2018


31.12.2017





Non-current financial liabilities



 


 


 





Financial liabilities at amortised cost




2.11.1




53 281 




50 061 






Financial liabilities at fair value through surplus or deficit




2.11.2




7




2





 


 



53 289 




50 063 






Current financial liabilities



 


 


 





Financial liabilities at amortised cost




2.11.1




2 602 




6 850 






Financial liabilities at fair value through surplus or deficit




2.11.2




15



—




 


 



2 617 




6 850 






Total



 



55 906 




56 913 





2.11.1.   
Financial liabilities at amortised cost










EUR million




 


Note


31.12.2018


31.12.2017





Borrowings for financial assistance




2.11.1.1




53 872 




54 841 






Other financial liabilities




2.11.1.2




2 012 




2 070 






Total



 



55 884 




56 911 






Non-Current



 



53 281 




50 061 






Current



 



2 602 




6 850 





2.11.1.1.   Borrowings for financial assistance












EUR million




 


EFSM


BOP


MFA


Euratom


ECSC in Liquid- dation


Total





Total at 31.12.2017




47 456 




3 114 




3 924 




250




97




54 841 






New borrowings




4 500 



—



515




50



—



5 065 






Repayments




(4 500 )




(1 350 )




(56)




(46)



—



(5 952 )






Exchange differences



—


—


—



(0)




(1)




(1)






Changes in carrying amounts




(56)




(30)




5




0




0




(82)






Total at 31.12.2018




47 400 




1 734 




4 388 




254




97




53 872 






Non-current




46 800 




200




4 309 




213



—



51 521 






Current




600




1 534 




79




41




97




2 350 





Borrowings mainly include debts evidenced by certificates amounting to EUR 53 725 million (2017: EUR 54 674 million). The changes in carrying amount correspond to the change in accrued interests.
Aside from ECSC in liquidation, the repayment of the above borrowings are ultimately guaranteed by the EU budget – see note 4.1.2, and by extension by each Member State.

Borrowings effective interest rates (expressed as a range of interest rates)








 


31.12.2018


31.12.2017





Macro Financial Assistance (MFA)




0 % - 3,82 %




0 % - 4,54 %






Euratom




0 % - 5,68 %




0 % - 5,68 %






Balance of Payment (BOP)




2,88 % - 3,38 %




2,88 % - 3,38 %






European Financial Stability Mechanism (EFSM)




0,50 % - 3,75 %




0,62 % - 3,75 %






ECSC in Liquidation




6,91 % - 8,97 %




6,91 % - 8,97 %





2.11.1.2.   Other financial liabilities








EUR million




 


31.12.2018


31.12.2017





Non-current



 


 





Finance lease liabilities




1 331 




1 456 






Buildings paid for in instalments




314




305






Other




115




159





 



1 760 




1 920 






Current



 


 





Finance lease liabilities




93




89






Buildings paid for in instalments




29




24






Fines to be reimbursed




125




13






Other




5




24





 



252




150






Total




2 012 




2 070 









Finance lease liabilities










EUR million




Description


Future amounts to be paid




< 1 year


1-5 years


> 5 years


Total Liability





Land and buildings




86




428




893




1 407 






Other fixed assets




7




10



—



17






Total at 31.12.2018




93




438




893




1 424 






Interest element




60




216




196




472






Total future minimum lease payments at 31.12.2018




153




654




1 089 




1 896 






Total future minimum lease payments at 31.12.2017




158




682




1 271 




2 111 





The lease and building related amounts above will have to be funded by future budgets.
2.11.2.   
Financial liabilities at fair value through surplus or deficit











EUR million




Type of derivative


31.12.2018


31.12.2017




Notional amount


Fair value


Notional amount


Fair value





Guarantee on equity portfolio




536




20



—


—





FX option (put spread)




11




2




9




2






Total




546




22




9




2






Non-current




82




7




9




2






Current




464




15



—


—





Guarantee on equity portfolio

Guarantees given on equity portfolio are classified as financial liabilities at fair value through surplus or deficit since they do not meet the definition of a financial guarantee liability – see note 1.5.12. As at 31 December 2018 this heading relates to a guarantee provided by the EU under the H2020 financial instruments (see note 2.4.1) to the EIB Group for portfolios of equity operations. The EU financial liability is measured based on the value of the underlying investments.

Foreign exchange option

As at 31 December 2018 the EU holds a derivative financial instrument (Foreign exchange option – put spread type of option) in which it covers the devaluation of the foreign exchange currency (UHA) related to loans given by financial institutions to SMEs in Ukraine so as to enhance the access to financing, as well as the attractiveness of the loan conditions in Ukraine. Under the terms of the contract, the EU provides its partners with an option to call, for each eligible loan, up to a maximum of 30 %, for an EU contribution in the case of devaluation of the ratio UHA/EUR.

Fair value hierarchy of financial liabilities measured at fair value








EUR million




 


31.12.2018


31.12.2017





Level 1: Quoted prices in active markets



—


—





Level 2: Observable inputs other than quoted prices




2




2






Level 3: Valuation techniques with inputs not based on observable market data




20



—





Total




22




2





2.11.3.   
Financial guarantee liabilities


The EFSI guarantee on the debt portfolio disbursed by the EIB under the EFSI Innovation and Infrastructure window (IIW) is classified as a financial guarantee liability. At 31 December 2018 the EFSI financial guarantee liability totals EUR zero, as the revenues to be received under the guarantee exceed expected losses (see note 4.1.1).
2.12.   PAYABLES












EUR million




 


Gross Amount


Adjustments


Net Amount at 31.12.2018


Gross Amount


Adjustments


Net Amount at 31.12.2017





Cost claims and invoices received from:



 


 


 


 


 


 





Member States:



 


 


 


 


 


 





EAFRD & other rural development instruments




247



—



247




481



—



481






ERDF & CF




10 761 




(1 724 )




9 037 




12 602 




(883)




11 719 






ESF




5 195 




(496)




4 699 




4 183 




(264)




3 919 






Other




632




(75)




557




746




(280)




466






Private and public entities




1 461 




(179)




1 282 




1 563 




(144)




1 419 






Total cost claims and invoices received




18 296 




(2 475 )




15 821 




19 574 




(1 571 )




18 004 






EAGF




14 772 




N/A




14 772 




11 534 




N/A




11 534 






Own resources payables




769




N/A




769




8 836 




N/A




8 836 






Sundry payables




570




N/A




570




341




N/A




341






Other




294




N/A




294




333




N/A




333






Total




34 701 




(2 475 )




32 227 




40 618 




(1 571 )




39 048 





Payables include invoices and cost claims received but not yet paid at year-end. They are initially recognised at the time of the reception of the invoices / cost claims for the requested amounts. The payables are subsequently adjusted to reflect only the amounts accepted following review of costs, and the amounts estimated to be eligible. The amounts estimated to be non-eligible are included in the column ‘Adjustments’; the largest amounts concern the structural actions.
In the 2014-2020 programming period, the Common Provisions Regulation (CPR) applicable to the Structural Funds (ERDF and ESF), Cohesion Fund and to the European Maritime and Fisheries Fund (EMFF) foresees that the EU budget is protected by means of a systematic retention of 10 % of the interim payments made. By February following the end of the CPR accounting year (1 July - 30 June), the control cycle is complete both through management verifications by the managing authorities and audits by the audit authorities. The Commission examines the assurance documents and the accounts provided by the relevant authorities in the Member States. The payment / recovery of the final balance is made only after this assessment is finalised and the accounts are accepted. The amount retained according to this provision at end 2018 totalled EUR 5,7 billion. A part of this amount (EUR 0,9 billion) is estimated as being non-eligible on the basis of the information provided by the Member States in their accounts and is also included in the column ‘Adjustments’. The final component of the adjustments to the payables is represented by the amounts corresponding to other advances to Member States (see note 2.5.2) still to pay at year-end (EUR 0,8 billion).
Payables concerning cohesion policy (ERDF, CF, ESF) have decreased which mainly relates to the fact that claims related to the period 2007-2013 have significantly decreased to EUR 3,5 billion (2017: EUR 10 billion), as the Commission is checking the final cost claims submitted by the Member States. At the same time, claims related to period 2014-2020 increased to EUR 10 billion (2017: EUR 5 billion) following further progress in the implementation of the programmes.
The increase in EAGF payables relates to the repartition of the total EAGF liabilities between payables and accrued charges. The total EAGF liabilities remain relatively stable at EUR 44 159 million against EUR 44 837 million last year. However, in 2018 the claimed amounts already covered by a conformity decision (accounted for as payable) are higher than in 2017.

Requests for pre-financing

In addition to the above amounts, at the end of 2018, EUR 0,5 billion of requests for pre-financing have been received and were not yet paid at year-end. According to the EU accounting rules, these amounts are not booked as payables.

Own Resources Payables

Own resources payables refer to Member States EU budget contributions to be reimbursed at year-end following the amending budget No 6/2018 adopted on 12 December 2018. Amending budgets are implemented according to Article 10(3) of Council Regulation (EU, Euratom) No 609/2014 (20). According to this legal provision, the resulting amounts were returned to the Member States on the first working day of January 2019. The significant amount on 31 December 2017 was due to the adoption of amending budget No 6/2017 on 30 November 2017. This year the amending budget mainly gave rise to additional Member States contributions (see note 2.6.1.1).
2.13.   ACCRUED CHARGES AND DEFERRED INCOME








EUR million




 


31.12.2018


31.12.2017





Accrued charges




62 877 




63 588 






Deferred income




96




111






Other




213




203






Total




63 186 




63 902 





The split of accrued charges is as follows:







EUR million




 


31.12.2018


31.12.2017





EAGF




29 387 




33 303 






EAFRD and other rural development instruments




18 687 




17 464 






ERDF and CF




5 863 




4 249 






ESF




2 321 




2 870 






Other




6 619 




5 702 






Total




62 877 




63 588 





The biggest movement concerns agriculture (EAGF), for the explanation see note 2.12. For cohesion policy, the increase for ERDF & CF is due to the increasing accruals for the current programming period 2014-2020 as the programmes further develop.

NET ASSETS

2.14.   RESERVES









EUR million




 


Note


31.12.2018


31.12.2017





Fair value reserve




2.14.1




231




278






Guarantee Fund reserve




2.14.2




2 849 




2 663 






Other reserves




2.14.3




1 881 




1 935 






Total



 



4 961 




4 876 





2.14.1.   
Fair value reserve


In accordance with the EU accounting rules, the adjustment to fair value of available for sale financial assets is accounted for through the fair value reserve.

Movements of the fair value reserve during the period








EUR million




 


2018


2017





Included in fair value reserve




(70)




(8)






Included in the statement of financial performance




23




6






Total




(47)




(2)





2.14.2.   
Guarantee Fund reserve


This reserve reflects the 9 % target amount of the outstanding amounts guaranteed by the EU budget under the EIB external lending mandate, that is required to be kept as assets in the Guarantee Fund for external actions (see note 2.4.1).
2.14.3.   
Other reserves


The amount relates primarily to the reserves of the ECSC in liquidation (EUR 1 514 million) for the assets of the Research Fund for Coal and Steel, which were created in the context of the winding-up of the ECSC.
2.15.   AMOUNTS TO BE CALLED FROM MEMBER STATES







 



EUR million






Amounts to be called from Member States at 31.12.2017




75 234 






Return of 2017 budget surplus to Member States




556






Movement in Guarantee Fund reserve




186






Remeasurements in employee benefits liabilities




4 396 






Other reserve movements




(30)






Economic result of the year




(13 918 )






Total amounts to be called from Member States at 31.12.2018




66 424 





This amount represents that part of the expenses incurred by the EU up to 31 December that must be funded by future budgets. Many expenses are recognised under accrual accounting rules in the year N although they may be actually paid in year N+1 (or later) and therefore funded using the budget of year N+1 (or later). The inclusion in the accounts of these liabilities coupled with the fact that the corresponding amounts are financed from future budgets, results in liabilities greatly exceeding assets at the year-end. The most significant amounts to be highlighted concern the EAGF activities and employee benefit liabilities.
It should also be noted that the above has no effect on the budget result – budget revenue should always equal or exceed budget expenditure and any excess of revenue is returned to Member States.
The remeasurements in employee benefits liabilities relate to actuarial gains and losses arising from the actuarial valuation of these liabilities. As from 1 January 2018 the amended EU accounting rule 12 (based on IPSAS 39) for employee benefits is applicable. According to this rule actuarial gains and losses are presented as a movement in net assets rather than in the statement of financial performance.
3.   NOTES TO THE STATEMENT OF FINANCIAL PERFORMANCE

REVENUE


REVENUE FROM NON-EXCHANGE TRANSACTIONS: OWN RESOURCES

3.1.   GNI RESOURCES

Own resources revenue is the primary element of the EU’s operating revenue. GNI (gross national income) revenue amounts to EUR 105 780 million for 2018 (2017: EUR 78 620 million) and is the most significant of the three categories of own resources. A uniform percentage is levied on the GNI of each Member State. The GNI revenue balances revenue and expenditure i.e. funds the part of the budget that is not covered by other sources of income. The increase of GNI revenue is explained mainly by the rise of payment appropriations in 2018 together with the limited budget surplus from the previous financial year (EUR 556 million; excluding EFTA result). Both elements impacted the requested Member States’ GNI contributions in 2018, as this contribution is a balancing figure.
3.2.   TRADITIONAL OWN RESOURCES








EUR million




 


2018


2017





Customs duties




22 763 




20 475 






Sugar levies




4




45






Total




22 767 




20 520 





Traditional own resources comprise custom duties and sugar levies. Member States retain, by way of collection costs, 20 % of traditional own resources, and the above amounts are shown net of this deduction. The increase in customs duties largely refers to the infringement case accrued revenue (see note 2.6.1.1).
3.3.   VAT RESOURCES

The VAT is defined as the Union’s second kind of own resources since this tax type was the first to be largely harmonised at the EU level. The VAT contribution is calculated by applying a uniform call rate of 0,3 % to the national VAT base which cannot exceed 50 % of the gross national income (GNI) of each Member State. For the period 2014-2020, the Council Decision 2014/335/EU, Euratom (21), foresees a reduced rate of call of 0,15 % for Germany, the Netherlands and Sweden.

REVENUE FROM NON-EXCHANGE TRANSACTIONS: TRANSFERS

3.4.   FINES

These revenues of EUR 6 740 million (2017: EUR 4 664 million) relate to fines the Commission has imposed on companies for breaches of EU competition rules and to fines the Commission has imposed on Member States for infringements of EU law. The Commission recognises revenues from fines when it adopts the decision to impose a fine and it officially notifies the addressee. The amounts are mainly competition fines (EUR 6 534 million). The biggest cases concern breaches of EU antitrust rules i.e. a fine imposed on Google for imposing illegal restrictions on Android device manufacturers and mobile network operators (EUR 4 343 million) and a fine imposed on Qualcomm for abusing its market dominance in chipsets (EUR 997 million).
3.5.   RECOVERY OF EXPENSES








EUR million




 


2018


2017





Shared management




2 116 




1 775 






Direct management




65




81






Indirect management




34




23






Total




2 215 




1 879 





This heading mainly represents the recovery orders issued by the Commission that are cashed or offset against (i.e. deducted from) subsequent payments recorded in the Commission’s accounting system, made so as to recover expenditure previously paid out from the EU budget. Recoveries are based on controls, audits or eligibility analysis and therefore, these actions are an important consideration in implementing the EU budget. These operations protect the EU budget from expenditure incurred in breach of law.
Recovery orders issued by Member States to beneficiaries of EAGF expenditure, as well as the variation of accrued income estimations from the previous year-end to the current, are also included.
The amounts included in the above table represent revenue earned through the issuance of recovery orders. For this reason, these figures cannot and do not show the full extent of the measures taken to protect the EU budget, particularly for cohesion policy where specific mechanisms are in place to ensure the correction of ineligible expenditure, most of which do not involve the issuance of a recovery order. Not included are amounts recovered through offsetting with expenses, amounts recovered by way of withdrawals and recoveries of pre-financing amounts.
Shared management recoveries make up the bulk of the total:

Agriculture: EAGF and rural development

In the framework of the EAGF and the EAFRD, amounts accounted for as revenue of the year under this heading are financial corrections of the year and reimbursements declared by Member States and recovered during the year, as well as the net increase in the outstanding amounts declared by Member States to be recovered at year-end concerning fraud and irregularities.

Cohesion policy

The main amounts related to cohesion policy relate to accrued income of EUR 1 146 million that the Commission expects to recover from the Member States. The recovery will be made as a result of the examination and acceptance of the annual accounts submitted by the Member States on 15 February 2019. This procedure for the acceptance of Member States’ annual accounts has been introduced for the first time in the cohesion area for the programming period 2014-2020.
3.6.   OTHER REVENUE FROM NON-EXCHANGE TRANSACTIONS









EUR million




 


2018


2017





Staff taxes and contributions




1 268 




1 218 






Contributions from third countries




1 376 




1 269 






Contributions from Member States for external aid




594




988






Transfer of assets




85




208






Adjustment of provisions




100




29






Agricultural levies




4




4






Budgetary adjustments




(726)




5 806 






Other




612




854






Total




3 312 




10 376 





Staff taxes and contributions revenue relates primarily to the deductions from staff salaries. Retirement contributions and income tax represent the substantial amounts within the category.
Contributions from third countries are contributions from EFTA countries and accession countries.
Contributions from Member States for external aid are mainly the amounts received to set up the Facility for Refugees in Turkey.
Transfer of assets revenue relates mainly to the transfer of satellites under the Copernicus programme from the European Space Agency (ESA) to the Commission (see note 2.2). This transfer is a non-exchange transaction according to the EU accounting rules and will occur in future periods for the remaining Copernicus satellites currently under construction.
The budgetary adjustments resulted in a negative amount as they include a considerably lower budget surplus from previous year (EUR 555 million compared to EUR 6,4 billion in 2017) and high GNI/VAT adjustments of EUR 1 292 million.
The 2018 amount of other revenue from non-exchange transactions includes an amount of EUR 100 million called from the EDF, representing its contribution to the EU budget for the purposes of the EFSD Guarantee Fund established under the Regulation (EU) 2017/1601 in 2018. Other significant amounts relate to ECSC Funding for the Coal and Steel Research (EUR 64 million) and contributions from other entities (EUR 176 million).

REVENUE FROM EXCHANGE TRANSACTIONS

3.7.   FINANCIAL REVENUE








EUR million




 


2018


2017





Interest on:



 


 





Late payments




1 458 




217






Loans




1 265 




1 379 






Other




68




41






Premium on financial guarantee liability (EFSI)




121




61






Dividends




103




23






Financial revenue from financial assets or liabilities at fair value through surplus or deficit




29




57






Realised gains on available for sale financial assets




23




38






Other




48




28






Total




3 115 




1 845 





Interest revenue on late payments stems mainly from fines and own resources contributions due and not paid on time. An amount of EUR 1,3 billion relates to the own resources cases referred to in note 2.6.1.1.
Interest revenue on loans relate mainly to loans granted for financial assistance (see note 2.4.3).
3.8.   OTHER REVENUE FROM EXCHANGE TRANSACTIONS








EUR million




 


2018


2017





Fee revenue for rendering of services (agencies)




602




557






Foreign exchange gains




329




281






Fee and premium revenue related to financial instruments




54




51






Share of net result of EIF




37




21






Sales of goods




33




42






Fixed assets related revenue




27




43






Other




297




338






Total




1 379 




1 332 





Fee revenue for rendering of services mainly include marketing authorisation fees charged by the European Medicines Agency and trademark fees collected by the European Union Intellectual Property Office.

EXPENSES

3.9.   SHARED MANAGEMENT








EUR million




Implemented by Member States


2018


2017





European Agricultural Guarantee Fund




43 527 




44 289 






European Agricultural Fund for Rural Development and other rural development instruments




13 149 




11 359 






European Regional Development Fund and Cohesion Fund




30 230 




17 650 






European Social Fund




11 935 




7 353 






Other




2 826 




1 253 






Total




101 666 




81 905 





The biggest increase concerns cohesion policy (ERDF, CF and ESF) and mainly relates to expenses declared during the year, which were paid or used to clear pre-financing. While there was a reduction of expenses for the period 2007-2013 (closure phase), the implementation for the current programming period 2014-2020 has significantly increased in 2018. The same applies for the EAFRD and other rural development instruments.
Other expenses mainly include: Asylum and Migration (EUR 0,6 billion), Fund for European Aid to the Most Deprived (EUR 0,4 billion), European Union Solidarity Fund (EUR 0,9 billion) and European Maritime and Fisheries Fund (EUR 0,6 billion). The increase compared to last year mainly relates to the European Union Solidarity Fund and the European Maritime and Fisheries Fund.
3.10.   DIRECT MANAGEMENT








EUR million




 


2018


2017





Implemented by the Commission




8 120 




8 831 






Implemented by EU Executive Agencies




8 964 




6 699 






Implemented by Trust funds




468




208






Total




17 551 




15 738 





These amounts mainly concern the implementation of Research Policy (EUR 7,3 billion), Networks Programmes (EUR 2,7 billion), Development Co-operation Instruments (EUR 1,4 billion), European Neighbourhood Policy (EUR 1,1 billion).
The increase in direct management expenses implemented by EU Executive agencies mainly (EUR 1,7 billion) refers to the Innovation and Networks Executive Agency (INEA) in particular the transport part of the Connecting Europe Facility (CEF). The CEF for transport is the funding instrument to implement European transport infrastructure policy and aims in building new or upgrading/rehabilitating transport infrastructure in Europe.
3.11.   INDIRECT MANAGEMENT








EUR million




 


2018


2017





Implemented by other EU agencies & bodies




3 396 




2 667 






Implemented by third countries




679




1 101 






Implemented by international organisations




3 337 




3 014 






Implemented by other entities




3 569 




1 478 






Total




10 981 




8 260 





Of the indirect management expenses, EUR 4,2 billion relates to external actions (mainly the areas of pre-accession, humanitarian aid, international co-operation and neighbourhood). A further EUR 6 billion is related to increasing Europe’s competitiveness (3).
3.12.   STAFF AND PENSION COSTS








EUR million




 


2018


2017





Staff costs




6 454 




6 193 






Pension costs




4 476 




3 808 






Total




10 929 




10 002 





Pension costs represent elements of the movements that have arisen following the actuarial valuation of the employee benefits liabilities other than actuarial assumptions. They do not therefore represent actual pension payments of the year, which are significantly lower.
3.13.   CHANGES IN EMPLOYEE BENEFITS ACTUARIAL ASSUMPTIONS

As from 1 January 2018 the amended EU accounting rule 12 (based on IPSAS 39) for employee benefits is applicable. According to this rule actuarial gains and losses (‘’remeasurements in employee benefits liabilities’’) are presented as a movement in net assets rather than in the statement of financial performance. The new accounting rule does not impact the estimation of these amounts.
3.14.   FINANCE COSTS








EUR million




 


2018


2017





Interest expenses:



 


 





Borrowings




1 260 




1 373 






Other




26




22






Impairment losses on loans and receivables




126




324






Loss on financial assets or liabilities at fair value through surplus or deficit




95




12






Finance leases




73




81






Impairment losses on available for sale financial assets




25




39






Realised loss on available for sale financial assets




21




2






Other




50




42






Total




1 677 




1 896 





The amount of interest expense on borrowings corresponds mainly to interest income on loans for financial assistance (back-to-back transactions).
3.15.   OTHER EXPENSES








EUR million




 


2018


2017





Administrative and IT expenses




2 313 




2 521 






Fixed assets related expenses




1 608 




1 423 






Adjustment of provisions




923




1 377 






Foreign exchange losses




341




446






Operating lease expenses




424




414






Reduction of fines by the Court of Justice




1




67






Other




598




509






Total




6 208 




6 756 





Expenses relating to research and development are included in administrative and IT expenses and are as follows:







EUR million




 


2018


2017





Research costs




385




376






Non-capitalised development costs




106




81






Total




491




456





3.16.   SEGMENT REPORTING BY MULTIANNUAL FINANCIAL FRAMEWORK HEADING (MFF)













EUR million




 


Smart and inclusive growth


Sustainable growth


Security and citizenship


Global Europe


Administration


Not assigned to MFF heading ( (*2))


Total





GNI resources



—


—


—


—


—



105 780 




105 780 






Traditional own resources



—


—


—


—


—



22 767 




22 767 






VAT



—


—


—


—


—



17 624 




17 624 






Fines



—


—


—


—


—



6 740 




6 740 






Recovery of expenses




1 395 




777




6




35




0




2




2 215 






Other




1 223 




48




109




228




5 077 




(3 374 )




3 312 






Revenue from non-exchange transactions




2 619 




825




115




262




5 077 




149 540 




158 438 






Financial revenue




282




0




0




16




0




2 816 




3 115 






Other




170




(14)




(8)




6




337




887




1 379 






Revenue from exchange transactions




453




(13)




(8)




23




337




3 703 




4 494 






Total revenue




3 072 




812




107




285




5 414 




153 243 




162 932 






Expenses implemented by Member States:



 


 


 


 


 


 


 





EAGF



—



(43 527 )



—


—


—


—



(43 527 )






EAFRD & other rural development instruments



—



(13 149 )



—


—


—


—



(13 149 )






ERDF & CF




(30 230 )



—


—


—


—


—



(30 230 )






ESF




(11 935 )



—


—


—


—


—



(11 935 )






Other




(437)




(596)




(1 762 )




(31)



—


—



(2 826 )






Implemented by the EC, executive agencies and trust funds




(11 565 )




(571)




(930)




(4 496 )




(13)




24




(17 551 )






Implemented by other EU agencies and bodies




(2 767 )




2




(810)




(48)



—



226




(3 396 )






Implemented by third countries and int. org.




(505)




(74)




(202)




(3 236 )




(0)



—



(4 016 )






Implemented by other entities




(2 696 )




(0)




2




(875)




(0)



—



(3 569 )






Staff and Pension costs




(1 675 )




(369)




(447)




(699)




(6 697 )




(1 043 )




(10 929 )






Changes in employee benefits actuarial assumptions



—


—


—


—


—


—


—





Finance costs




(149)




(22)




(0)




(16)




(93)




(1 397 )




(1 677 )






Other expenses




(1 945 )




(313)




(137)




(109)




(3 231 )




(472)




(6 208 )






Total expenses




(63 903 )




(58 620 )




(4 287 )




(9 510 )




(10 034 )




(2 661 )




(149 014 )






Economic result of the year




(60 831 )




(57 808 )




(4 180 )




(9 225 )




(4 620 )




150 581 




13 918 





The display of revenue and expenses by MFF heading is based on estimation as not all commitments are linked to an MFF heading.
4.   CONTINGENT LIABILITIES AND ASSETS
4.1.   CONTINGENT LIABILITIES

Contingent liabilities are possible future payment obligations for the EU that may arise due to past events or legally binding commitments taken but which will depend on future events not wholly under the control of the EU. They relate mainly to financial guarantees given (on loans and financial assistance programmes) and to legal risks. All contingent liabilities, except those relating to fines and guarantees covered by funds (see note 2.4.1), would be financed, should they fall due, by the EU budget (and thus the EU Member States) in the years to come.
4.1.1.   
Budgetary guarantees













EUR million




 


31.12.2018


31.12.2017




 


Ceiling


Signed


Disbursed


Ceiling


Signed


Disbursed





EIB external lending mandate guarantees




40 417 




30 889 




20 510 




37 479 




28 950 




19 972 






EFSI guarantee




25 898 




19 842 




15 764 




16 000 




13 473 




10 128 






Total




66 315 




50 731 




36 273 




53 479 




42 423 




30 100 





The above table shows the extent of the exposure of the EU budget to possible future payments linked to guarantees given to the EIB group. Disbursed amounts represent the amounts already given to final beneficiaries, while signed amounts include these disbursed monies plus agreements already signed with beneficiaries or financial intermediaries but not yet disbursed. The ceiling represents the total guarantee that the EU budget, and thus its Member States, have committed to cover.

EIB external lending mandate guarantees

The EU budget guarantees loans signed and granted by the EIB from the EIB’s own resources to third countries. At 31 December 2018 the amount of loans outstanding and covered by the EU guarantee totalled EUR 20 510 million (2017: 19 972 million). The EU budget guarantees:






—


EUR 19 360 million (2017: EUR 18 583 million) via the Guarantee Fund for external actions (see note 2.4.1), and










—


EUR 1 150 million (2017: EUR 1 389 million) directly for loans granted to Member States before accession.




In addition to the EUR 20 510 million disclosed above as disbursed, the EU guarantees a further EUR 210 million of outstanding loans to Syria for which provisions have been made.
The EU external lending mandate guarantee relating to loans granted by the EIB is limited to 65 % of the outstanding balances for agreements signed after 2007 (mandates 2007-2013 and 2014-2020). For agreements before 2007 the EU guarantee is limited to a percentage of the ceiling of the credit lines authorised, in most cases 65 % but also 70 %, 75 % or 100 %. Where the ceiling is not reached, the EU guarantee covers the full amount.
To disclose the maximum exposure faced by the EU at 31 December 2018, however, one must also include loans authorised to be signed but not yet signed (EUR 9 528 million) and loans signed but not disbursed (EUR 10 379 million).
In March 2018 Decision (EU) 2018/412 (22) was adopted by the European Parliament and the Council allowing for an increase of the ceiling of the EIB financing operations under the EU guarantee. The guarantee agreement with the EIB has been amended accordingly, which led to an increase of the EU maximum exposure by EUR 3,4 billion in 2018.

European Fund for Strategic Investments (EFSI) guarantee

EFSI is an initiative that aims to increase the risk bearing capacity of the EIB Group by enabling the EIB to extend its investments in the EU. The objective of EFSI is to support additional investments in the EU and access to finance for small companies. EFSI is not a separate legal entity or an investment fund in the strict sense. The EFSI risk reserve offers protection to the EIB against potential losses for underlying operations. It is composed of a gradual allocation of at least EUR 7,5 billion of EIB’s own capital and an EU budget guarantee of up to EUR 26 billion (‘EFSI EU guarantee’). The EFSI EU guarantee is provided to the EIB under an agreement between the EU and the EIB, hereafter referred to as ‘EFSI Agreement’. The EFSI Agreement was amended in 2018, reflecting the increased EFSI EU guarantee ceiling of EUR 26 billion in line with the amended EFSI Regulation (Regulation (EU) 2017/2396).
The EFSI operations are conducted within two windows: the Infrastructure and Innovation Window (IIW) implemented by the EIB (EFSI EU guarantee of EUR 19,5 billion) and the SME Window (SMEW) implemented by the EIF (EFSI EU guarantee of EUR 6,5 billion), both of which have a debt portfolio and an equity portfolio. The EIF acts under an agreement with the EIB on the basis of an EIB guarantee which itself is counter-guaranteed by the EFSI EU Guarantee under the EFSI Agreement.
The EU and the EIB have distinct roles within EFSI. EFSI is established within the EIB who finances the operations (debt and equity investments) and, to do this, borrows the necessary funds on the capital markets. Regarding the IIW, the EIB takes the investment decisions independently and manages the operations in accordance with its rules and procedures. The same applies to the SMEW operations managed by the EIF.
In order to ensure that investments made under EFSI remain focused on the specific objective of addressing the market failures which hinder investment in the EU and that they are eligible for the protection of the EU guarantee, a dedicated governance structure has been put in place. The Investment Committee of independent experts examines each project proposed by the EIB under the IIW regarding its eligibility for the EU guarantee coverage. Once an operation is confirmed to be eligible as EFSI guaranteed operation, the decision to continue with the project and its management is then subject to the normal EIB project cycle and governance process. Regarding SMEW, the role of the Investment Committee is limited to the consultation on the description of the SMEW Products, which are being approved by the EFSI Steering Board and EFSI Managing Director. EFSI is also supervised by a steering board composed of five members, of which three are appointed by the Commission, one by the EIB and one non-voting member by the European Parliament. The decisions shall be taken by consensus, and - if the consensus cannot be achieved - by the unanimous vote among its voting members. The EFSI steering board does not take investment decisions.
The role of the EU relates to the provision of the EU budget guarantee for part of the potential losses that the EIB may suffer from its investments in debt and equity instruments. Consequently, the EU does not intervene in the selection and management of EFSI operations, does not invest money in the EFSI operations and is not a direct contractual party to the underlying instruments. As the control criteria and accounting requirements for consolidation under the EU accounting rules (and IPSAS) are not met, the related guaranteed assets are not accounted for in the consolidated annual accounts of the EU.
The EU guarantee granted to the EIB Group under EFSI is, in accordance with the EU accounting rules, accounted for as a financial guarantee liability in respect of the IIW debt portfolio, as a financial provision for the SMEW debt portfolio and as a derivative (financial asset or liability at fair value through surplus or deficit) for both equity portfolios. In addition, a contingent liability related to the EFSI guarantee given is disclosed in this note.
Under the EFSI IIW debt portfolio, the EU guarantee covers the first loss piece of a portfolio of financing operations entered into by the EIB, which are mainly standard loans and guarantees. The EU guarantee is called when the debtor fails to make a payment when due or in the case of a debt restructuring. The EU guarantee is remunerated in proportion to the risk taken by the EU and this happens in the form of a distribution, between the EIB and the EU, of the risk-related revenues received by EIB from the guaranteed operations. The EU revenues should first cover the losses incurred on the guaranteed operations. The EU guarantee is therefore accounted for as financial guarantee liability and measured, at initial recognition, at fair value, being the net present value of the premiums receivable (the EU revenues). At subsequent balance sheet dates, the financial guarantee liability is measured at the higher of the expected losses and the amount initially recognised less, when appropriate, the accumulated amortisation of the revenue. The financial guarantee liability is presented net of the EU revenues still to be received – zero at 31 December 2018 (2017: nil) – see note 2.11.3.
Under the EFSI IIW equity portfolio, which consists of direct equity or quasi equity participations or subordinated loans, the EIB invests pari-passu at its own risk and also at the risk of the EU. Consequently, the EU guarantee covers - for the part of the equity investments guaranteed by the EU - the negative value adjustments (unrealised losses) at each balance sheet date, the realised losses at dis-investment and the EIB funding costs. In cases where the value of an investment, which was previously subject to a negative value adjustment, increases at subsequent reporting dates, the amount up to the original cost of the investment is reimbursed by the EIB to the EU. At the time of the dis-investment, the EU is also entitled to gains on the investment exceeding the original cost. The EU guarantee is remunerated by revenues received by the EIB from the guaranteed operations, including interests, dividends and realised gains. The settlement between the EU and the EIB happens annually net of losses and revenues.
Under EFSI SMEW equity portfolio, the EU guarantees equity investments in venture capital and private equity funds, funded by the EIB and originated and managed by the EIF. The EU guarantee is provided on a portfolio basis for two portfolios: sub-window 1 and sub-window 2. The EFSI guarantee is called to cover impairment and realised losses from the guaranteed investments and the EIB funding costs. The EU is entitled to the remuneration for the risk taken in form of dividends and realised gains from the guaranteed equity operations. Under the sub-window 2, the EU Horizon 2020 programme also partially invests in the same equity portfolio (the H2020 investment funded by the EU is accounted for as an available for sale financial asset in the EU accounts) and bears first losses from the investments, while further losses are covered by the EU Guarantee and the EIF.
The EFSI guarantee on the EFSI equity portfolio is classified as a derivative financial instrument and accounted for as a financial asset or financial liability at fair value through surplus or deficit. At 31 December 2018 the fair value of the EFSI EU guarantee on the EFSI equity portfolio amounted to EUR 14 million (2017: EUR 16 million) – see note 2.4.2.
The contingent liability above includes operations of the COSME, H2020, CCS and EaSI programmes for the part covered by the EFSI EU guarantee under SMEW debt portfolio.
EU guarantee payments would be made by the EFSI Guarantee Fund – see note 2.4.1. At the end of 2018 the assets of the guarantee fund totalled EUR 5 452 million (2017: EUR 3 504 million), while another EUR 2 688 million (2017: EUR 2 633 million) have been committed but not yet paid and is included in the amount disclosed as RAL in note 5.1. During 2018 EUR 61 million of guarantee calls have been paid out from the EFSI Guarantee Fund.
4.1.2.   
Guarantees relating to financial assistance (borrowing and lending activities)













EUR million




 


31.12.2018


31.12.2017




 


Drawn


Undrawn


Total


Drawn


Undrawn


Total





EFSM




47 400 



—



47 400 




47 456 



—



47 456 






BOP




1 734 



—



1 734 




3 114 



—



3 114 






MFA




4 388 




980




5 368 




3 924 




460




4 384 






Euratom




254




200




454




250




250




500






Total




53 775 




1 180 




54 955 




54 744 




710




55 454 





The EU budget guarantees the borrowings of the Commission taken to finance lending to Member and non-Member States in the back-to-back transactions. These borrowings are already recognised as liabilities on the EU balance sheet - see note 2.11.1. However, should there be a default on the back-to-back-loans given out with these borrowings, the EU budget, based on Article 14 of Council Regulation (EU, Euratom) No 609/2014, would have to bear the full cost of the amount defaulted:






—


Borrowings related to loans disbursed under the EFSM are guaranteed solely by the EU budget;










—


Borrowings related to BOP loans are guaranteed solely by the EU budget;










—


MFA loans are firstly guaranteed by the Guarantee Fund for external actions (see note 2.4.1) and then by the EU budget; and










—


Guarantees from third parties are the first cover for the entire amounts of the outstanding Euratom loans. The Guarantee Fund would cover the external lending amounts should the third party guarantees not provide for them.




ECSC in Liquidation loans granted on borrowed funds are not covered by an EU budgetary guarantee. Instead, they are covered by financial assets of the ECSC in Liquidation – see note 2.4.1.
4.1.3.   
Guarantees given for EU financial instruments









EUR million




 


31.12.2018


31.12.2017





Horizon 2020




1 467 




1 297 






Risk Sharing Finance Facility




642




654






Connecting Europe Facility




579




490






Other




29




32






Total




2 717 




2 473 





As mentioned in Article 210(1) FR, the budgetary expenditure linked to a financial instrument and the financial liability of the EU shall in no case exceed the amount of the relevant budgetary commitment made for it, thus excluding contingent liabilities for the budget. In practise, it means that these liabilities have a counter-part on the asset side of the balance sheet or are covered by the outstanding budgetary commitments not yet expensed. The contingent liabilities above are shown net of financial provisions made for these instruments – see note 2.10.
4.1.4.   
Legal cases









EUR million




 


31.12.2018


31.12.2017





Fines




3 187 




3 242 






Agriculture




653




1 737 






Cohesion




26




3






Other




1 867 




481






Total




5 732 




5 463 






Fines

These amounts mainly concern fines imposed by the Commission for infringement of competition rules that have been provisionally paid by fined companies and where either an appeal has been lodged or where it is unknown if an appeal will be made. The contingent liability will be maintained until a decision by the Court of Justice on the case is final or until the expiry of the period for appeal. Interest earned on provisional payments is included in the economic result of the year and also as a contingent liability to reflect the uncertainty of the Commission’s title to these amounts.
Should the EU lose any of these cases relating to fines imposed, the amounts that have been provisionally received will be returned to the companies. The amount of fines is only recognised as budgetary revenue when the fines are definitive (Article 107 FR).

Agriculture

These are contingent liabilities towards the Member States connected with EAGF conformity decisions, rural development and pre –accession financial corrections pending judgement of the Court of Justice. The determination of the final amount of the liability and the year in which the effect of successful appeals will be charged to the budget will depend on the length of the procedure before the Court.

Cohesion

These are contingent liabilities towards the Member States in connection with actions under cohesion policy awaiting the oral hearing date or pending judgement of the Court of Justice.

Other legal cases

This heading relates to actions for damages currently being brought against the EU, other legal disputes and the estimated legal costs. It should be noted that in an action for damages under Article 340 TFEU the applicant must demonstrate a sufficiently serious breach by the institution of a rule of law intended to confer rights on individuals, real harm suffered by the applicant, and a direct causal link between the unlawful act and the harm. The amount for 2018 mainly concerns a damages claim against the European Commission for a merger prohibition decision. The legal case is fairly new and at an early stage. As a result, in the absence of a reliable estimate, the amount disclosed relates to the claimed amount.
4.2.   CONTINGENT ASSETS








EUR million




 


31.12.2018


31.12.2017





Guarantees received:



 


 





Performance guarantees




321




352






Other guarantees




19




22






Other contingent assets




25




34






Total




366




409





Performance guarantees are requested to ensure that beneficiaries of EU funding meet the obligations of their contracts with the EU.
5.   BUDGETARY AND LEGAL COMMITMENTS
This note provides information on the budgetary process and future funding needs and not on liabilities existing as at 31 December 2018.
The multiannual financial framework (MFF) agreed by the Member States defines the programmes and sets out the heading ceilings for commitment appropriations and the total for payment appropriations within which the EU may enter into budgetary and legal commitments, and ultimately make payments for a period of 7 years – see table 1.1 in the notes to the budgetary implementation reports.
The MFF ceilings were adopted by the Council (Member States), with the consent of the European Parliament, and Article 16 of Regulation (EU) No 1306/2013 on the financing of the CAP makes a direct link between the annual ceiling of EAGF expenditure and the MFF Regulation. The European Parliament and the Council also adopted the respective basic acts for the EAGF expenditure that set out the expenditure per Member State for the entire period 2014-2020.
Legal commitments correspond to programmes, projects, agreements or contracts signed, thus legally binding the EU. A legal commitment is the act whereby the authorising officer enters or establishes an obligation (for the EU) which results in a charge (Article 2(37) FR).
A budgetary commitment is in principle made before the legal commitment, but for some multiannual programmes/projects it is the reverse, the relevant budgetary commitments being made in annual instalments, over several years, when the basic act so provides for. For example, for cohesion, Article 76 of the Common Provisions Regulation (CPR) (Regulation (EU) No 1303/2013 (23) provides that the decision of the Commission adopting a programme shall constitute a legal commitment within the meaning of the Financial Regulation but that the budget commitments of the Union in respect of each programme shall be made in annual instalments for each Fund during the period between 1 January 2014 and 31 December 2020. Other legal bases may contain similar provisions. For this reason, there may be amounts that the EU has legally committed to pay, but where the budgetary commitment has not yet been made – see notes 5.2 and 5.3 below.
If the budgetary commitment has been made but the subsequent payments are not yet made, the amount of outstanding commitments is called ‘Reste à Liquider’ (RAL). This can represent programmes or projects, often multiannual, signed and for which payments will only be made in later years. They represent payment obligations for future years. As the financial statements are prepared on an accrual basis, whereas the budgetary implementation reports are prepared on a cash basis, part of the overall amounts unpaid (RAL) has already been expensed and is recognised as a liability on the balance sheet (see notes 2.12 and 2.13). The calculation of these expenses is made based either on cost claims/invoices received or on the estimated implementation of a programme or project where no claims have been notified yet to the EU – see note 5.1 below. Once the payments relating to the RAL are made after 31 December 2018, the liability on the balance sheet is derecognised. The part of the RAL not expensed yet is not included under liabilities but is instead disclosed below.
The disclosures below thus represent amounts at 31 December 2018 that the EU has committed to pay based on the fulfilment of the contractual agreements and which are therefore intended to be funded by future EU budgets.








EUR million




 


Note


31.12.2018


31.12.2017





Outstanding budgetary commitments not yet expensed




5.1




235 836 




221 391 






Shared management legal commitments under the current MFF pending implementation




5.2




143 883 




211 688 






Significant legal commitments in other areas




5.3




18 126 




20 030 






Total



 



397 845 




453 109 





5.1.   OUTSTANDING BUDGETARY COMMITMENTS NOT YET EXPENSED








EUR million




 


31.12.2018


31.12.2017





Outstanding budgetary commitments not yet expensed




235 836 




221 391 





The amount disclosed above is the budgetary RAL (‘Reste à Liquider’) of EUR 281 175 million (see table 4.4 in the notes to the budgetary implementation reports), less related amounts that have been included as liabilities on the balance sheet and as expenses in the statement of financial performance. The budgetary RAL is an amount representing the open commitments for which payments and/or de-commitments have not yet been made. As explained above, this is the normal consequence of the existence of multiannual programmes.
It should be noted that outstanding pre-financing advances at 31 December 2018 totalled EUR 50 billion (see note 2.5). This represents budgetary commitments that have been paid, decreasing the RAL, but where the amounts paid are still considered as belonging to the EU and not to the beneficiary until the contractual commitments are fulfilled. They are thus like the RAL disclosed above, not yet expensed.
5.2.   SHARED MANAGEMENT LEGAL COMMITMENTS UNDER THE CURRENT MFF PENDING IMPLEMENTATION










EUR million




Funds


Financial framework 2014-2020 (A)


Legal commitments concluded (B)


Budget commitments (C)


Legal commitments less budget commitments (B-C)





European Regional Development Fund and Cohesion Fund




262 408 




262 408 




179 831 




82 578 






European Social Fund




92 935 




92 819 




65 230 




27 588 






European Neighbourhood Policy Instrument



 


 


 


—





Fund for European Aid to the most Deprived




3 814 




3 814 




2 670 




1 144 






HEADING 1B: COHESION POLICY FUNDS




359 157 




359 041 




247 731 




111 310 






European Agricultural Fund for Rural Development




100 079 




100 079 




70 748 




29 331 






European Maritime and Fisheries Fund




5 749 




5 749 




4 048 




1 702 






HEADING 2: NATURAL RESOURCES




105 828 




105 828 




74 795 




31 033 






Asylum and Migration Fund




5 028 




4 393 




3 577 




816






Internal Security Fund




3 016 




2 883 




2 159 




724






HEADING 3: SECURITY & CITIZENSHIP




8 044 




7 276 




5 736 




1 540 






Total




473 030 




472 145 




328 262 




143 883 





These are legal obligations that the EU has committed to paying when adopting the operational programmes related to shared management. The decision of the Commission adopting an operational programme shall constitute a financing decision within the meaning of Article 110 FR and once notified to the Member State concerned, a legal commitment within the meaning of that Regulation.
Article 76 of the CPR for European Structural and Investment Funds (ESIF) states:

‘The budget commitments of the Union in respect of each programme shall be made in annual instalments for each Fund during the period between 1 January 2014 and 31 December 2020. The budget commitments relating to the performance reserve in each programme shall be made separately from the remaining allocation to the programme.’

The table above starts with the total MFF (column A) and shows the legal commitments for which budget commitments have not yet been made for the MFF 2014-2020, headings 1B, 2 and 3. These legal commitments thus represent the outstanding amounts that the EU will commit budgetarily and then pay after 31 December 2018. Column B shows the legal commitments concluded by the Commission at year-end and column C shows the budget commitments made relating to these legal commitments at year-end.
5.3.   SIGNIFICANT LEGAL COMMITMENTS IN OTHER AREAS








EUR million




 


31.12.2018


31.12.2017





Connecting Europe Facility




11 554 




12 676 






ITER




1 489 




1 496 






Copernicus




1 267 




1 841 






Galileo




493




253






Fisheries agreements




46




133






Operating lease commitments




2 352 




2 577 






Other contractual commitments




924




1 054 






Total




18 126 




20 030 





These amounts reflect the long-term legal commitments that were not yet covered by commitment appropriations in the budget at year-end. These binding obligations will be budgeted in annual instalments in future years and paid.
Certain important programmes (see below) may be implemented by annual instalments according to Article 112(2) FR. This allows the EU to make legal commitments (sign grant agreements, delegation agreements and procurement contracts) in excess of the available commitment appropriations of a given year. Therefore a substantial amount of the overall allocation for the current MFF may be already committed. This applies in particular for the programmes described below:

Connecting Europe Facility (CEF)

The CEF provides financial assistance to trans-European networks in order to support projects of common interest in the sectors of transport, telecommunications and energy infrastructures. The legal commitments for the CEF programme cover an implementation period running from 2014 until 2023 for the CEF Transport and up to 31.12.2024 for CEF Energy. The legal basis of these commitments is Regulation (EU) No 1316/2013 which foresees the use of the annual instalment in its Article 19.

Copernicus

Copernicus is the European Earth observation programme – see also note 2.2. These commitments are made for the period until 2020. Based on Regulation (EU) No 377/2014 of the European Parliament and of the Council of 3 April 2014 establishing the Copernicus Programme and repealing Regulation (EU) No 911/2010 (24) the Commission signed delegation agreements with the European Space Agency (ESA), EUMETSAT, Mercator and the European Centre for Medium Range weather forecasts. Article 8 of Regulation (EU) 377/2014 authorises the use of annual instalments.

ITER – International Thermonuclear Experimental Reactor

These commitments are intended to cover future funding needs of the ITER facilities up to 2021. The EU (Euratom) contribution to ITER International is given through the Fusion for Energy Agency, including also the contributions from Member States and from Switzerland. These commitments are made on the basis of Council Decision 2013/791/Euratom of 13 December 2013 amending Decision 2007/198/Euratom establishing the European Joint Undertaking for ITER and the Development of Fusion Energy and conferring advantages upon it (25) which authorises the use of annual instalments. ITER was created to manage and to encourage the exploitation of the ITER facilities, to promote public understanding and acceptance of fusion energy, and to undertake any other activities that are necessary to achieve its purpose. ITER involves the EU, China, India, Russia, South Korea, Japan and the USA.

Galileo

These are amounts committed to the Galileo programme developing a European Global Navigation Satellite System – see also note 2.2. These commitments are made for the period until 2020. Based on Regulation (EU) No 1285/2013 (26) the Commission signed a delegation agreement with ESA. Article 9 of Regulation (EU) No 1285/2013 authorises the use of annual instalments.

Fisheries agreements

These represent commitments entered into with third countries for operations under international fisheries agreements up to 2023. The commitments made are based on Council decisions for each third country (e.g. Council Decision (EU) 2019/385 of 4 March 2019 on the conclusion of the Protocol on the implementation of the Fisheries Partnership Agreement between the European Union and the Republic of Côte d’Ivoire (2018-2024) (27) and are considered specific international treaties with multiannual rights and obligations.

Operating lease commitments

Minimum amounts committed to be paid according to the underlying contracts during the remaining term of these lease contracts are as follows:









EUR million




 


Minimum lease payments


 




 


< 1 year


1-5 years


> 5 years


Total





Buildings




439




943




940




2 321 






IT materials and other equipment




9




21




0




31






Total




448




964




940




2 352 





In the context of the United Kingdom’s notification of its intention to withdraw from the European Union, and as a result of Regulation (EU) 2018/1718 of the European Parliament and of the Council of 14 November 2018 amending Regulation (EC) No 726/2004 as regards the location of the seat of the European Medicines Agency (28), the seat of the European Medicines Agency (‘EMA’) was relocated from London to Amsterdam. The current lease contract for the premises in London has a term expiring in 2039 and will thus need to be terminated early or subject to a reassignment or a subletting agreement with a third party.
The amounts disclosed in the table above include EUR 468 million still due under this lease contract, however the future net financial impact in the consolidated financial statements, if any, depends on termination negotiations with the landlord or on the contractual terms of subletting agreement entered into with a third party.

Other contractual commitments

The amounts included under this disclosure correspond to amounts committed to be paid during the term of the contracts. The most significant amount included here relates to building contracts of the European Parliament (EUR 87 million).
6.   FINANCIAL RISK MANAGEMENT
The following disclosures with regard to the financial risk management of the EU relate to:






—


Borrowing and lending activities for financial assistance carried out by the Commission through: EFSM, BOP, MFA, and Euratom actions and for loans from borrowed funds of the ECSC in Liquidation;










—


The treasury operations carried out by the Commission in order to implement the EU budget, including the receipt of fines;










—


Assets held in funds for budgetary guarantees: the Guarantee Fund for external actions, the EFSI Guarantee Fund and the EFSD Guarantee Fund; and










—


Financial instruments financed by the EU budget.




6.1.   TYPES OF RISK


Market risk is the risk that the fair value or future cash flows of a financial instrument will fluctuate, because of variations in market prices. Market risk embodies not only the potential for loss, but also the potential for gain. It comprises currency risk, interest rate risk and other price risk (the EU has no significant other price risk).






—



Currency risk is the risk that the EU’s operations or its investments’ value will be affected by changes in exchange rates. This risk arises from the change in price of one currency against another.










—



Interest rate risk is the possibility of a reduction in the value of a security, especially a bond, resulting from an increase in interest rates. In general, higher interest rates will lead to lower prices of fixed rate bonds, and vice versa.





Credit risk is the risk of loss due to a debtor’s / borrower’s non-payment of a loan or other line of credit (either the principal or interest or both) or other failure to meet a contractual obligation. The default events include a delay in repayments, restructuring of borrower repayments and bankruptcy.

Liquidity risk is the risk that arises from the difficulty in selling an asset; for example, the risk that a given security or asset cannot be traded quickly enough in the market to prevent a loss or meet an obligation.
6.2.   RISK MANAGEMENT POLICIES

The implementation of the EU budget relies increasingly on the use of operational programme financial instruments. For more information on the amounts concerned, see note 2.4.1.
Common to most financial instruments is the fact that the implementation is delegated to either the EIB group (including EIF) or to other financial institutions based on an agreement between the Commission and the financial institution. Agreements signed with these financial institutions include strict conditions and obligations on the intermediaries so as to ensure that EU monies are properly managed and reported on. Once a financial contribution to one of the instruments has been committed, the funds are transferred to a specifically created bank account of the financial institution (i.e. a fiduciary account). The financial institution may, depending on the instrument in question, use the funds on this fiduciary account to provide loans, issue debt instruments, invest in equity instruments or cover the guarantee calls. Proceeds from financial instruments have, as a general rule, to be reimbursed to the EU budget.
The risk as regards these financial instruments is limited to a ceiling as indicated in the underlying agreements, which is the budgeted amount foreseen for the instrument. As the Commission often bears the ‘first loss piece’ and since instruments are intended to finance riskier beneficiaries (who have difficulties in obtaining funding from commercial lenders), it is therefore likely that some losses to the EU budget will occur.

Measurement of financial instruments

The following classes of financial assets and liabilities are not measured at fair value: cash and cash equivalents, loans, exchange receivables and non-exchange recoverables, borrowings and other financial liabilities measured at amortised cost. The carrying amount of those financial assets and liabilities is considered as a reasonable approximation of their fair value.

Borrowing and lending activities for financial assistance

The borrowing and lending transactions, as well as related treasury management, are carried out by the EU according to the respective Council and EP Regulation, Council Decisions, and, if applicable, internal guidelines. Written procedure manuals covering specific areas such as borrowings, loans and treasury management have been developed and are used by the relevant operational units. Lending operations are financed by ‘back-to-back’ borrowings, which thus do not generate open interest rate or currency positions.

Treasury

The rules and principles for the management of the Commission’s treasury operations are laid down in the Council Regulation (EU, Euratom) No 609/2014 (as amended by Council Regulation (EU, Euratom) 2016/804 (29) and in the Financial Regulation.
As a result of the above regulations, the following main principles apply:






—


Own resources are paid by the Member States into accounts opened for this purpose in the name of the Commission with the Treasury or national central bank. The Commission may draw on the above accounts solely to cover its cash requirements.










—


Own resources are paid by Member States in their own national currencies, while the Commission’s payments are mostly denominated in EUR.










—


Bank accounts opened in the name of the Commission may not be overdrawn. This restriction does not apply to the Commission’s own resource accounts in case of a default on loans contracted or guaranteed pursuant to EU Council regulations and decisions and under certain conditions in case the cash resource requirements are in excess of the assets of the accounts.










—


Funds held in bank accounts denominated in currencies other than EUR are either used for payments in the same currencies or periodically converted in EUR.




In addition to the own resources accounts, other bank accounts are opened by the Commission, with central banks and commercial banks, for the purpose of executing payments and receiving receipts other than the Member State contributions to the budget.
Treasury and payment operations are highly automated and rely on modern information systems. Specific procedures are applied to guarantee system security and to ensure segregation of duties in line with the Financial Regulation, the Commission’s internal control standards, and audit principles.
A written set of guidelines and procedures regulates the management of the Commission’s treasury and payment operations with the objective of limiting operational and financial risk and ensuring an adequate level of control. They cover different areas of operation (for example: payment execution and cash management, cashflow forecasting, business continuity, etc.), and compliance with the guidelines and procedures is checked regularly. Additionally, information is exchanged between the Directorate General for the Budget and the Directorate-General for Economic and Financial Affairs on risk management and best practices.

Fines


Provisionally cashed fines: deposits

Amounts received before 2010 remain in bank accounts with banks specifically selected for the deposit of provisionally cashed fines. The selection of banks is conducted in compliance with tender procedures defined by the Financial Regulation. Placement of funds with specific banks is determined by the internal risk management policy defining the credit rating requirements and the amount of funds which could be placed in proportion to the counterparty equity. Financial and operational risks are identified and evaluated and compliance with internal policies and procedures is checked regularly.

Provisionally cashed fines: BUFI portfolio

Fines imposed and provisionally cashed from 2010 onwards are invested in a specifically created portfolio, BUFI. The main objectives of the portfolio are the reduction of risks associated with financial markets and the equal treatment of all fined entities by offering a guaranteed return calculated on the same basis. The asset management for provisionally cashed fines is carried out by the Commission in accordance with internal asset management guidelines. Procedural manuals covering specific areas such as treasury management have been developed and are used by the relevant operational units. Financial and operational risks are identified and evaluated and compliance with internal guidelines and procedures is checked regularly.
The objectives of the asset management activities are to invest the fines provisionally paid to the Commission in such a way as to:






—


ensure that the funds are easily available when needed, while










—


aiming at delivering, under normal circumstances, a return which on average is in line with the return of the BUFI Benchmark minus costs incurred, while preserving the nominal amount for the fines which were paid into the portfolio before the entry into force of the new Financial Regulation in August 2018.




Investments are restricted essentially to the following categories: term deposits with Member States’ Central Banks, sovereign debt agencies, fully state-owned or state-guaranteed banks or supranational institutions, and bonds, bills and Certificates of Deposit issued by either sovereign or supranational institutions.

Bank guarantees

Significant amounts of guarantees issued by financial institutions are held by the Commission in relation to the fines it imposes on companies breaching EU competition rules (see note 2.6.1.2). These guarantees are provided by fined companies as an alternative to making provisional payments. The guarantees are managed in compliance with the internal risk management policy. Financial and operational risks are identified and evaluated and compliance with internal policies and procedures is checked regularly.

Guarantee Fund for external actions

The rules and principles for the asset management of the Guarantee Fund are laid out in the Convention between the Commission and the EIB dated 25 November 1994 and the subsequent amendments dated 17/23 September 1996, 8 May 2002, 25 February 2008, 9 November 2010 and 28 October 2018. This Guarantee Fund operates only in euros. It exclusively invests in this currency in order to avoid any foreign currency risk. Management of the assets is based upon the traditional rules of prudence adhered to for financial activities. It is required to pay particular attention to reducing the risks and to ensuring that the managed assets can be sold or transferred without significant delay, taking into account the commitments covered.

EFSI Guarantee Fund

The EFSI Guarantee Fund was established by EFSI Regulation – see note 2.4.1. The rules and principles for the asset management of the Fund are laid out in the Commission Decision C(2016) 165 of 21 January 2016. The managed assets shall provide sufficient liquidity in relation to the potential guarantee calls, while still aiming at optimising the return and risk level that is compatible with maintaining a high degree of security and stability.

EFSD Guarantee Fund

EFSD Guarantee Fund has been established pursuant to the EFSD Regulation – see note 2.4.1. The management of the EFSD Guarantee Fund assets is carried out by the Commission in accordance with internal guidelines and asset management guidelines which are included as Annex 1 to Commission Decision C(2017) 7693 of 22 November 2017. The assets are managed in such a way so as to provide sufficient liquidity in relation to the potential guarantee calls, while still aiming at optimising the return and risk level that is compatible with maintaining a high degree of security and stability.
6.3.   CURRENCY RISK


Financial instruments exposure of the EU to currency risk at year-end – net position













EUR million 31.12.2018




 


USD


GBP


DKK


SEK


EUR


Other


Total





Financial assets



 


 


 


 


 


 


 





Available for sale financial assets




619



57



18




7




14 725 




17




15 443 






Financial assets at fair value through surplus or deficit




(475)



—


—


—



491



—



16






Loans
 (*3)




6



0


—


—



56




5




67






Receivables and recoverables




19



4 109 



99




109




20 026 




303




24 664 






Cash and cash equivalents




49




1 524 




290




406




14 338 




1 505 




18 113 





 



218




5 690 




407




523




49 635 




1 830 




58 303 






Financial liabilities



 


 


 


 


 


 


 





Financial liabilities at fair value through surplus or deficit



—


—


—


—



(20)




(2)




(22)






Payables




(2)




(1)




(0)




(0)




(32 218 )




(5)




(32 227 )





 



(2)




(1)




(0)




(0)




(32 238 )




(7)




(32 249 )






Total




216




5 689 




407




523




17 397 




1 824 




26 055 




















EUR million 31.12.2017




 


USD


GBP


DKK


SEK


EUR


Other


Total





Financial assets



 


 


 


 


 


 


 





Available for sale financial assets




680



57



17




56




12 806 




16




13 632 






Financial assets at fair value through surplus or deficit




(632)



—


—


—



655



—



23






Loans
 (*3)




6



0


—


—



123




7




137






Receivables and recoverables




15



549



63




86




11 591 




62




12 366 






Cash and cash equivalents




49




3 180 




27




693




18 468 




1 694 




24 111 





 



118




3 787 




107




835




43 642 




1 779 




50 268 






Financial liabilities



 


 


 


 


 


 


 





Financial liabilities at fair value through surplus or deficit



—


—


—


—


—



(2)




(2)






Payables




(4)




(2)




(0)




(1)




(39 029 )




(12)




(39 048 )





 



(4)




(2)




(0)




(1)




(39 029 )




(14)




(39 050 )






Total




114




3 785 




107




834




4 613 




1 765 




11 218 





If the EUR had strengthened against other currencies by 10 %, then it would have had the following impact:









EUR million Economic result




 


USD


GBP


DKK


SEK





2018




(7)




(512)




(35)




(47)






2017




(5)




(339)




(8)




(71)

















EUR million Net assets




 


USD


GBP


DKK


SEK





31.12.2018




(13)




(5)




(2)




(1)






31.12.2017




(5)




(5)




(2)




(5)





If the EUR had weakened against these currencies by 10 %, then it would have had the following impact:









EUR million Economic result




 


USD


GBP


DKK


SEK





2018




9




625




43




57






2017




6




414




10




87

















EUR million Net assets




 


USD


GBP


DKK


SEK





31.12.2018




16




6




2




1






31.12.2017




7




6




2




6






Borrowing and lending activities for financial assistance

Financial assets and liabilities are mostly in EUR, so the EU has no foreign currency risk.

Treasury

Own resources paid by Member States in currencies other than EUR are kept on the own resources accounts, in accordance with Council Regulation (EU, Euratom) No 609/2014 (as amended by Council Regulation (EU, Euratom) 2016/804). They are converted into EUR when they are needed to cover for the execution of payments. The procedures applied for the management of these funds are laid down by the above referred regulation. In a limited number of cases, these funds are directly used for payments to be executed in the same currencies.
A number of accounts in EU currencies other than EUR, and in USD and CHF, are held by the Commission with commercial banks, for the purpose of executing payments denominated in these same currencies. These accounts are replenished depending on the amount of payments to be executed, as a consequence their balances do not represent exposure to currency risk.
When miscellaneous receipts (receipts other than own resources) are received in currencies other than EUR, they are either transferred to Commission’s accounts held in the same currencies, if they are needed to cover the execution of payments, or converted into EUR and transferred to accounts held in EUR. Imprest accounts held in currencies other than EUR are replenished depending on the estimated short-term local payments needs in the same currencies. Balances on these accounts are kept within their respective ceilings.

Fines


Provisionally cashed fines (deposits and BUFI portfolio) and bank guarantees

Since all fines are imposed and paid in EUR, there is no foreign currency risk.

Guarantee Fund for external actions

The financial assets of this fund are in EUR so there is no currency risk. The loans subrogated to the EU as result of calls on the Fund following payment defaults by a loan beneficiary are carried out in their original currency and therefore expose the EU to currency risk. There are no activities to compensate foreign currency variations (‘hedging’ activities) due to uncertainty relating to the loans repayment timing.

EFSI Guarantee Fund

The EFSI Guarantee Fund currently operates in both EUR and USD. Currency risk is managed through entering into derivative contracts (foreign exchange forward contracts) hedging the market value of the USD investments portfolio. The limit for maximum unhedged foreign exchange exposure is set at 1 % of the total portfolio value within the benchmark and annual strategy allocations. Thus, upward or downward movements in the USD investments’ market value above or below the 1 % limit would trigger a rebalancing trade (a new forward contract with the same or opposite direction), adjusting or reversing the hedged position accordingly. Readjustment of the hedge may also be prompted by movements of the EUR/USD exchange rate.
The loans subrogated to the EU as result of calls on the Fund following payment defaults by a loan beneficiary are carried out in their original currency and therefore expose the EU to currency risk. For the subrogated loans, there are no activities to compensate foreign currency variations (‘hedging’ activities) due to uncertainty relating to the loans repayment timing.

EFSD Guarantee Fund

The EFSD Guarantee Fund currently operates in EUR only, but the asset management guidelines for the EFSD Guarantee Fund provide for the possibility to invest in certain non-EUR denominated assets.
6.4.   INTEREST RATE RISK

The following table illustrates the interest rate sensitivity of available for sale financial assets assuming a possible change in interest rates of +/- 100 basis points (1 %).







EUR million




 


Increase (+) / decrease (-) in basis points


Effect on net assets





2018: Available for sale financial assets




+100




(348)





 



-100




374






2017: Available for sale financial assets




+100




(359)





 



-100




382






Borrowing and lending activities for financial assistance

Due to the nature of its borrowing and lending activities, the EU has significant interest-bearing assets and liabilities. However, there is no interest rate risk since the borrowings are offset by equivalent loans at the same terms and conditions (back-to-back).

Treasury

The Commission’s treasury does not borrow money; so as a consequence, it is not exposed to interest rate risk. Interest is however calculated on balances held on the different bank accounts. The Commission has therefore put in place measures to ensure that interest earned on its bank accounts regularly reflects market interest rates, as well as their possible fluctuation.
Accounts opened with Member States Treasuries for own resources receipts are non-interest bearing and free of charges. Accounts held with national central banks may be remunerated at the official rates applied by each institution. As some of the remunerations applied to these accounts may currently be negative, cash management procedures are in place to minimise balances kept on these accounts.
In addition, own resources accounts are protected from any impact of negative interest in accordance with Council Regulation (EU, Euratom) No 609/2014 and as amended by Council Regulation (EU, Euratom) 2016/804).
Overnight balances held on commercial bank accounts earn interest on a daily basis. This is based on variable market rates to which a contractual margin (positive or negative) is applied. The rates applied by commercial banks are in general contractually floored at zero. As a result no risk exists that the Commission earns interest at rates lower than market rates.

Fines


Provisionally cashed fines (deposits, BUFI portfolio) and bank guarantees

The provisionally cashed fines are invested in a portfolio of money market instruments and long-term bonds with an average duration of 2.58 years.

Guarantee Fund for external actions

The budget provisioned in the Guarantee Fund is invested in a portfolio of money market instruments and long-term bonds with a total average portfolio duration of 2.58 years.

EFSI Guarantee Fund

The budget provisioned in the EFSI Guarantee Fund is invested in a portfolio of money market instruments and long-term bonds with a total average portfolio duration of 2.4 years.

EFSD Guarantee Fund

As the first budget provisioning just started at the end of 2018, the EFSD Guarantee Fund mainly consists of cash held in central banks. The average portfolio duration amounts to 0.03 years.
6.5.   CREDIT RISK

The amounts that represent the EU’s exposure to credit risk at the end of the reporting period are the carrying amounts of the financial instruments as disclosed in note 2.

Analysis of the age of financial assets that are not impaired











EUR million




 


Total


Neither past due nor impaired


Past due but not impaired




 


< 1 year


1-5 years


> 5 years





Loans




53 939 




53 939 




0



—


—





Receivables and recoverables




24 664 




14 737 




6 585 




3 209 




134






Financial assets at fair value through surplus or deficit




16




16



—


—


—





Total at 31.12.2018




78 620 




68 692 




6 585 




3 209 




134






Loans




54 981 




54 980 




0



—


—





Receivables and recoverables




12 366 




8 905 




2 894 




359




208






Financial assets at fair value through surplus or deficit




23




23



—


—


—





Total at 31.12.2017




67 369 




63 908 




2 894 




359




208





Receivables and recoverables less than 1 year include recoverables related to competition fines amounting to EUR 6 366 million, while receivables and recoverables between 1 and 5 years contain recoverables concerning competition fines of EUR 3 136 million. The previously mentioned amounts are largely covered by bank guarantees, thus making the Commission’s exposure to the credit risk low. Fined companies provide these guarantees as an alternative to making provisional payments.

Credit quality of financial assets that are neither past due nor impaired












EUR million 31.12.2018




 


AFS ( (*4))


Financial assets at FVSD ( (*5))


Loans


Receivables and recoverables


Cash


Total





Counterparties with external credit rating



 


 


 


 


 


 





Prime and high grade




9 019 




16




98




9 064 




14 950 




33 146 






Upper medium grade




3 209 



—



23 513 




755




2 740 




30 217 






Lower medium grade




1 765 



—



25 775 




1 456 




181




29 177 






Non-investment grade



—


—



4 488 




200




221




4 909 





 



13 993 




16




53 874 




11 475 




18 092 




97 449 






Counterparties without external credit rating



 


 


 


 


 


 





Group 1



—


—



64




3 262 




21




3 347 






Group 2



—


—



2




0



—



2





 


—


—



66




3 262 




21




3 349 






Total




13 993 




16




53 939 




14 737 




18 113 




100 797 



















EUR million 31.12.2017




 


AFS ( (*4))


Financial assets at FVSD ( (*5))


Loans


Receivables and recoverables


Cash


Total





Counterparties with external credit rating



 


 


 


 


 


 





Prime and high grade




8 068 




16




143




2 989 




19 261 




30 477 






Upper medium grade




1 794 



—



23 585 




293




3 977 




29 650 






Lower medium grade




2 186 



—



27 195 




846




463




30 691 






Non-investment grade



—


—



3 977 




110




389




4 476 





 



12 048 




16




54 901 




4 239 




24 090 




95 293 






Counterparties without external credit rating



 


 


 


 


 


 





Group 1



—



6




80




4 665 




21




4 772 






Group 2



—


—


—



1



—



1





 


—



6




80




4 666 




21




4 773 






Total




12 048 




23




54 980 




8 904 




24 111 




100 067 





Not included in the above table are available for sale financial assets in the form of equity instruments without external credit rating. The four risk categories mentioned above are in principle based on the rating categories of external rating agencies and correspond to:






—


Prime and high grade: Moody P-1, Aaa – Aa3; S&P A-1+, A-1, AAA – AA -; Fitch F1+, F1, AAA – AA- and equivalent










—


Upper medium grade: Moody P-2, A1 – A3; S&P A-2, A+ - A-; Fitch F2, A+ - A- and equivalent










—


Lower medium grade: Moody P-3, Baa1 – Baa3, S&P A-3, BBB+ - BBB-; Fitch F-3, BBBB+ - BBB- and equivalent










—


Non-investment grade: Moody not prime, Ba1 – C; S&P B, C, BB+ - D; Fitch B, C, BB+ - D and equivalent




The EU uses these external agencies rating categories as a reference point notably for financial instruments and commercial banks, but may, after making its own analysis of individual cases, keep amounts in one of the above risk categories even though one or more of the abovementioned rating agencies may have downgraded the corresponding counterparty. As regards non-rated counterparties, group 1 relates to debtors without defaults in the past and group 2 relates to debtors with defaults in the past.
The amounts displayed above under loans and receivables categorised in non-investment grade relate primarily to financial support loans disbursed by the Commission to Member States in financial difficulties and recoverables against certain Members States based on own resources regulations or other legal basis. The amount under cash relates to own resources bank accounts opened in the Treasury or in the central banks of Member States to hold the own resources contributions as foreseen in the above referred regulation. The Commission may draw on these accounts solely to cover cash requirements arising from execution of the budget.

Borrowing and lending activities for financial assistance

Exposure to credit risk is managed firstly by obtaining State guarantees in the case of Euratom, then through the Guarantee Fund for external actions (MFA & Euratom), then by the possibility of drawing the necessary funds from the Commission’s own resources accounts with the Member States and ultimately through the Budget of the EU.
The Own Resources legislation fixes the ceiling for own resources payments at 1,20 % of Member States’ GNI and during 2018 0,90 % was actually used to cover payment appropriations. This means that at 31 December 2018 there existed an available margin of 0,30 % to cover these guarantees. To this end, the EU is entitled to call upon all the Member States to ensure compliance with the EU’s legal obligation towards its lenders.

Treasury

Most of the Commission’s treasury resources are kept, in accordance with Council Regulation (EU, Euratom) No 609/2014 (as amended by Council Regulation (EU, Euratom) 2016/804) on own resources, in the accounts opened by Member States for the payment of their contributions (own resources). All such accounts are held with Member States’ treasuries or national central banks. These institutions carry the lowest credit (or counterparty) risk for the Commission as the exposure is with its Member States. For the part of the Commission’s treasury resources kept with commercial banks, in order to cover the execution of payments, replenishment of these accounts is made on a just-in-time basis and is automatically managed by the treasury cash management system. Minimum cash levels, which take into account the average amount of daily payments executed from it, are kept on each account. As a consequence the total amount kept overnight on these accounts remains constantly at low levels (overall less than EUR 80 million on average, spread over around 20 accounts) and so it is ensured that the Commission’s risk exposure is limited. These amounts should be viewed with regard to the daily overall treasury balances which fluctuated in 2018 between EUR 6 billion and EUR 37 billion, and with an overall amount of payments made from Commission accounts in 2018 that exceeded EUR 155 billion.
In addition, specific guidelines are applied for the selection of commercial banks in order to further minimise counterparty risk to which the Commission is exposed:






—


All commercial banks are selected by call for tenders. The minimum short-term credit rating required for admission to the tendering procedures is Moody’s P-1 or equivalent. A lower level may be accepted in specific and duly justified circumstances.










—


The credit ratings of the commercial banks where the Commission has accounts are monitored on a daily basis.










—


In delegations outside the EU, imprest accounts are held with local banks selected by a simplified tendering procedure. Rating requirements depend on the local situation and may significantly differ from one country to another. In order to limit risk exposure, balances on these accounts are kept at the lowest possible levels (taking into account operational needs), they are regularly replenished, and the applied ceilings are reviewed on a yearly basis.





Fines


Provisionally cashed fines: deposits

Banks holding deposits for the fines provisionally cashed before 2010 are selected by tender procedure in compliance with the risk management policy which defines the credit rating requirements and the amount of funds which could be placed in proportion to the counterparty equity.
For commercial banks that have been specifically selected for the deposit of provisionally cashed fines, a minimum long-term rating A- (S&P or equivalent) with two rating agencies is required as a general rule. Specific measures are applied in case banks in this group are subject to downgrade. In addition, the amount deposited with each bank is limited to a certain percentage of its own funds, which varies depending on the rating level of each institution. The calculation of such limits also takes into account the amount of outstanding guarantees issued to the Commission by the same institution. The compliance of outstanding deposits with the applicable policy requirements is reviewed regularly.

Provisionally cashed fines: BUFI portfolio

For sovereign debt investments from provisionally cashed fines imposed as from 2010, the Commission takes on the exposure to credit risk. The highest concentration of exposure is towards Spain, which represents 16 % of the portfolio. The five countries with the highest exposure (Spain, France, Luxembourg, Germany and Italy) represent altogether 67 % of the investment portfolio. The weighted average credit rating of the portfolio is A- (S&P or equivalent).

Bank guarantees

The risk management policy applied for the acceptance of such guarantees ensures a high credit quality for the Commission. The compliance of the outstanding guarantees with the applicable policy requirements is reviewed regularly.

Guarantee Fund for external actions

The treasury portfolio’s agreed asset management guidelines and/or investment strategy define certain limits and restrictions in order to limit the exposure to credit risk of the portfolio. Such limits and restrictions include eligibility criteria, absolute credit limits in nominal terms depending on issuer category, relative concentration limits depending on issuer category and concentration limits per issue. All investments are rated at least as investment grade.

EFSI Guarantee Fund

The asset management guidelines, risk and investment strategies define certain limits and restrictions in order to limit the exposure to credit risk of the portfolio which is generally limited to investment grade. The weighted average credit rating of the portfolio is A- (S&P or equivalent).
As the sole counterparty for all outstanding currency forwards as of 31 December 2018 is the Banque de France, no credit enhancements, such as collateral, netting agreements, or guarantees are put in place as of this date. The maximum exposure to credit risk for foreign exchange derivatives having a positive fair value at the end of the reporting period is equal to the carrying amount on the balance sheet.

EFSD Guarantee Fund

The asset management guidelines, risk and investment strategies define certain limits and restrictions in order to limit the exposure to credit risk of the portfolio, which is generally limited to investment grade. The weighted average credit rating of the portfolio is AAA (S&P or equivalent) by application of the sovereign rating for the cash held at central bank.
6.6.   LIQUIDITY RISK


Maturity analysis of financial liabilities by remaining contractual maturity










EUR million




 


< 1 year


1-5 years


> 5 years


Total





Borrowings




(2 350 )




(17 363 )




(34 158 )




(53 872 )






Payables




(32 227 )



—


—



(32 227 )






Other




(252)




(648)




(1 112 )




(2 012 )






Total at 31.12.2018




(34 829 )




(18 011 )




(35 270 )




(88 110 )






Borrowings




(6 700 )




(14 862 )




(33 279 )




(54 841 )






Payables




(39 048 )



—


—



(39 048 )






Other




(150)




(665)




(1 255 )




(2 070 )






Total at 31.12.2017




(45 898 )




(15 527 )




(34 534 )




(95 959 )






Financial instruments at fair value through surplus or deficit










EUR million




 


< 1 year


1-5 years


> 5 years


Total





Derivative pay leg




(490)




(2)




(6)




(498)






Derivative receive leg




477



—


—



477






Net cash flows at 31.12.2018




(14)




(2)




(6)




(21)






Derivative pay leg




(634)




(2)



—



(635)






Derivative receive leg




638



—


—



638






Net cash flows at 31.12.2017




5




(2)



—



3






Borrowing and lending activities for financial assistance

The liquidity risk that arises from borrowings is generally offset by equivalent loans in terms and conditions (back-to-back operations). For MFA and Euratom, the Guarantee Fund for external actions serves as a liquidity reserve (or safety net) in case of payment default and payment delays of borrowers. For BOP, the Council Regulation (EU) No 431/2009 (30) provides for a procedure allowing sufficient time to mobilise funds through the Commission’s own resources accounts with the Member States. For EFSM, the Council Regulation (EU) No 407/2010 (31) provides for a similar procedure.

Treasury

EU budget principles ensure that overall cash resources for a given year are always sufficient for the execution of all payments. In fact, the total Member States contributions together with the miscellaneous receipts equal the amount of payment appropriations for the budgetary year. Member States’ contributions, however, are received in twelve monthly instalments throughout the year, while payments are subject to certain seasonality. Moreover, in accordance with the Council Regulation (EU, Euratom) No 609/2014 (on the methods and procedure for making available own resources, amended by Council Regulation (EU, Euratom) 2016/804), Member States contributions relating to amending budgets approved in a given month (N) only become available either on the first working day of the month N+1 (if approved before the 16th of the given month) or on the first working day of month N+2 (if approved on the 16th or later of that given month), while the related payment appropriations are immediately available.
In order to ensure that available treasury resources are always sufficient to cover the payments to be executed in any given month, procedures regarding regular cash forecasting are in place, and own resources or additional funding can be called up in advance from Member States if needed, up to certain limits and under certain conditions. Seasonality of expenditure and overall budgetary restrictions in recent years have resulted in the need for increased monitoring of the rhythm of payments over the year. In addition to the above, in the context of the Commission’s daily treasury operations, automated cash management tools ensure that sufficient liquidity is available on each of the Commission’s bank accounts, on a daily basis.

Fines


Provisionally cashed fines: BUFI portfolio

The fund is managed according to the principle that the assets shall have a sufficient degree of liquidity and mobilisation in relation to the relevant commitments. The portfolio is composed of mostly highly liquid securities that can be sold to meet unexpected cash outflows. In addition, the share of cash, cash equivalents and securities maturing within 1 year is 23 %.

Guarantee Fund for external actions

The Fund is managed according to the principle that the assets shall have a sufficient degree of liquidity and mobilisation in relation to the relevant commitments. The fund therefore maintains a sufficient amount of monetary assets to cover short-term outflows. The share of cash, cash equivalents and securities maturing within 1 year is 9,2 %.

EFSI Guarantee Fund

The EFSI Guarantee Fund is managed according to the principle that the assets shall have a sufficient degree of liquidity and mobilisation in relation to the relevant commitments. The portfolio is composed of liquid assets that can be sold to meet unexpected cash outflows. In addition the share of cash, cash equivalents and securities maturing within 1 year is 22 %.
The settlement of derivative contracts is gross and is based on their contractual maturity. Obligations are honoured via sales of USD-denominated assets and/or a swap transaction, whereby it is possible that a cash outflow arises due to foreign exchange differences.
No liquidity management is necessary with regard to collateral / margin requirements as the current hedging counterparty accepts to operate with the Commission without any requirements for collateral / margin calls.

EFSD Guarantee Fund

The EFSD Guarantee Fund is managed according to the principle that the assets shall have a sufficient degree of liquidity and mobilisation in relation to the relevant commitments.
The portfolio is composed of 97 % cash held in current accounts.

Other financial instruments – derivative financial liabilities

In 2017 the EU entered into a derivative contract (foreign exchange option) covering the devaluation of foreign exchange currency related to loans given by financial institutions (see note 2.11.2). Moreover, the EU guarantee on equity portfolios held by the EIB Group lead to a financial obligation to cover changes in the value or impairments of underlying investments. As for the other financial instruments financed by the EU Budget, the amount for which the EU is liable under these instruments cannot exceed the amount committed, being the liquidity risk mitigated by that fact.
7.   RELATED PARTY DISCLOSURES
7.1.   RELATED PARTIES

The related parties of the EU are the EU consolidated entities, associates and the key management personnel of these entities. Transactions between these entities take place as part of the normal operations of the EU and as this is the case, no specific disclosure requirements are necessary for these transactions in accordance with the EU accounting rules.
7.2.   KEY MANAGEMENT ENTITLEMENTS

For the purposes of presenting information on related party transactions concerning the key management of the EU, such persons are shown here under five categories:
Category 1: the Presidents of the European Council, the Commission and the Court of Justice of the European Union
Category 2: the Vice-president of the Commission and High Representative of the EU for Foreign Affairs and Security Policy and the other Vice-presidents of the Commission
Category 3: the Secretary-General of the Council, the Members of the Commission, the Judges and Advocates General of the Court of Justice of the European Union, the President and Members of the General Court, the President and Members of the European Civil Service Tribunal, the Ombudsman and the European Data Protection Supervisor
Category 4: the President and Members of the European Court of Auditors
Category 5: the highest-ranking civil servants of the Institutions and Agencies
A summary of their entitlements is given below – further information can be found in the Staff Regulations published on the Europa website which is the official document describing the rights and obligations of all officials of the EU. Key management personnel have not received any preferential loans from the EU.

KEY MANAGEMENT FINANCIAL ENTITLEMENTS











EUR




Entitlement (per employee)


Category 1


Category 2


Category 3


Category 4


Category 5





Basic salary (per month)




27 903,32 




25 274,75  -




20 219,80  -




21 837,39  -




12 856,84  -





 


 



26 285,75 




22 747,28 




23 252,78 




20 219,80 






Residential/Expatriation allowance




15 %




15 %




15 %




15 %




0-4 %-16 %






Family allowances:



 


 


 


 


 




Household (% salary)


2 % + 187,69 


2 % + 187,69 


2 % + 187,69 


2 % + 187,69 


2 % + 187,69 




Dependent child


410,11 


410,11 


410,11 


410,11 


410,11 




Pre-school


100,18 


100,18 


100,18 


100,18 


100,18 




Education, or


278,25 


278,25 


278,25 


278,25 


278,25 




Education outside place of work


556,5 


556,5 


556,5 


556,5 


556,5 





Presiding judges allowance




N/A




N/A




638,43 




N/A




N/A






Representation allowance




1 512,12 




971,82 




638,43 




N/A




N/A






Annual travel costs




N/A




N/A




N/A




N/A




N/A






Transfers to Member State:



 


 


 


 


 




Education allowance ( (*6))


Yes


Yes


Yes


Yes


Yes




% of salary ( (*6))


5 %


5 %


5 %


5 %


5 %




% of salary with no cc


max 25 %


max 25 %


max 25 %


max 25 %


max 25 %





Representation expenses




Reimbursed




Reimbursed




Reimbursed




N/A




N/A






Taking up duty:



 


 


 


 


 




Installation expenses


55 806,65 


50 549,49 


40 439,60 


43 674,78 


Reimbursed




 


 


-52 571,49 


-45 494,55 


-46 505,55 


 




Family travel expenses


Reimbursed


Reimbursed


Reimbursed


Reimbursed


Reimbursed




Moving expenses


Reimbursed


Reimbursed


Reimbursed


Reimbursed


Reimbursed





Leaving office:



 


 


 


 


 




Resettlement expenses


27 903,32 


25 274,75  -


20 219,80  -


21 837,39  -


Reimbursed




 


 


26 285,75 


22 747,28 


23 252,78 


 




Family travel expenses


Reimbursed


Reimbursed


Reimbursed


Reimbursed


Reimbursed




Moving expenses


Reimbursed


Reimbursed


Reimbursed


Reimbursed


Reimbursed




Transition (% salary)( (*7))


40 % - 65 %


40 % - 65 %


40 % - 65 %


40 % - 65 %


N/A




Sickness insurance


Covered


Covered


Covered


Covered


Covered





Pension (% salary, before tax)




Max 70 %




Max 70 %




Max 70 %




Max 70 %




Max 70%






Deductions:



 


 


 


 


 




Tax on salary


8 % - 45 %


8 % - 45 %


8 % - 45 %


8 % - 45 %


8% - 45%





Sickness insurance (% salary)




1,7 %




1,7 %




1,7 %




1,7 %




1,7%





Special levy on salary


7 %


7 %


7 %


7 %


6-7%




Pension deduction


N/A


N/A


N/A


N/A


10,0%





Number of persons at year-end




3




6




93




28




112





8.   EVENTS AFTER THE BALANCE SHEET DATE
At the date of signature of these accounts no material issues had come to the attention of, or were reported to, the Accounting Officer of the Commission that would require separate disclosure under this section. The accounts and related notes were prepared using the most recently available information and this is reflected in the information presented.
9.   SCOPE OF CONSOLIDATION
A.   CONTROLLED ENTITIES (52)

1.   Institutions and consultative bodies (11)


European Parliament


European Council


European Commission


European Court of Auditors


Court of Justice of the European Union


European External Action Service


European Data Protection Supervisor


European Economic and Social Committee


European Ombudsman


Committee of the Regions


Council of the European Union

2.   EU Agencies (39)

2.1.   
Executive Agencies (6)



Education, Audiovisual & Culture Executive Agency


Consumers, Health, Agriculture and Food Executive Agency


Research Executive Agency


Executive Agency for Small and Medium-sized Enterprises


Innovation & Networks Executive Agency


European Research Council Executive Agency

2.2.   
Decentralised Agencies (33)



European Maritime Safety Agency


European Medicines Agency


European GNSS Supervisory Authority


European Chemicals Agency


Fusion for Energy (European Joint Undertaking for ITER and the Development of Fusion Energy)


Eurojust


European Institute for Gender Equality


European Agency for Safety and Health at Work


European Centre for Disease Prevention and Control


European Environment Agency


European Centre for the Development of Vocational Training


European Agency for Cooperation of Energy Regulators


European Banking Authority


European Asylum Support Office


Office for the Body of European Regulators for Electronic Communication


European Agency Border and Coast Guard Agency (Frontex)


eu-LISA (European Agency for the operational management of large-scale IT systems in the area of freedom, security and justice)


European Food Safety Authority


European Railway Agency


Community Plant Variety Office


European Fisheries Control Agency


European Monitoring Centre for Drugs and Drug Addiction


European Union Intellectual Property Office


European Police Office (Europol)


European Aviation Safety Agency


European Network and Information Security Agency


European Union Agency for Fundamental Rights


European Insurance and Occupational Pensions Authority


Translation Centre for the Bodies of the European Union


European Securities and Markets Authority


European Training Foundation


European Foundation for the Improvement of Living and Working Conditions


European Union Agency for Law Enforcement Training (CEPOL)

3.   Other controlled entities (2)


European Coal and Steel Community (in liquidation)


European Institute of Innovation and Technology

B.   ASSOCIATES (1)


European Investment Fund


MINOR ENTITIES

The entities listed below have not been consolidated using the equity method into the 2018 EU consolidated financial statements on the basis of immateriality:

BIO BASED INDUSTRIES JOINT UNDERTAKING

Bio Based Industries is a Public-Private Partnership (PPP) between the EU and the Bio-based Industries Consortium (BIC). The BBI is dedicated to realising the European bioeconomy potential, turning biological residues and wastes into greener everyday products through innovative technologies and biorefineries, which are at the heart of the bioeconomy.

CLEAN SKY JOINT UNDERTAKING

Clean Sky is the largest European research programme developing innovative, cutting-edge technology aimed at reducing CO2, gas emissions and noise levels produced by aircraft. Funded by the EU’s Horizon 2020 programme, Clean Sky contributes to strengthening European aero-industry collaboration, global leadership and competitiveness.

INNOVATIVE MEDICINES INITIATIVE JOINT UNDERTAKING (IMI)

IMI is Europe’s largest public-private initiative aiming to speed up the development of better and safer medicines for patients. IMI is a joint undertaking between the European Union and a pharmaceutical industry association.

ELECTRONIC COMPONENTS AND SYSTEMS FOR EUROPEAN LEADERSHIP (ECSEL) JOINT UNDERTAKING (AMALGAMATION OF THE FORMER ARTEMIS & ENIAC JUs)

ECSEL is a PPP in electronic components and systems, bridging the gap between research and exploitation, aligning strategies to increase European and national investments, and building an advanced ecosystem.

FUEL CELLS AND HYDROGEN JOINT UNDERTAKING (FCH)

FCH is a PPP supporting research, technological development and demonstration (RTD) activities in fuel cell and hydrogen energy technologies in Europe. Its aim is to accelerate the market introduction of these technologies, realising their potential as an instrument in achieving a carbon-lean energy system.

SINGLE EUROPEAN SKY ATM RESEARCH JOINT UNDERTAKING (SESAR)

SESAR is a PPP responsible for the modernisation of the European air traffic management (ATM) system by coordinating and concentrating all ATM relevant research and innovation efforts in the EU.

SHIFT2RAIL JOINT UNDERTAKING

Shift2Rail is the first European rail joint technology initiative to seek focused research and innovation (R&I) and market-driven solutions by accelerating the integration of new and advanced technologies into innovative rail product solutions.
The annual accounts of the above entities are publicly available on their respective websites.
FINANCIAL STATEMENT DISCUSSION AND ANALYSIS (32)


CONTENTS








1.

CONSOLIDATED FINANCIAL STATEMENTS OF THE EU: FINANCIAL SITUATION 2018
91










1.1.

REVENUE
91










1.2.

EXPENSES
91










1.3.

ASSETS
92










1.4.

LIABILITIES
100










2.

MANAGEMENT OF RISKS AND UNCERTAINTIES OF EU BUDGET IMPLEMENTATION
101










2.1.

MACRO-ECONOMIC ENVIRONMENT
101










2.2.

BUDGETARY CONTINGENT LIABILITIES FOR FINANCIAL ASSISTANCE
102










2.3.

BUDGETARY GUARANTEES
103










2.4.

NEW ENTRANTS’ RESERVE (NER) 300
103



The objective of this Financial Statement Discussion and Analysis (FSDA) is to assist readers to understand the financial position, financial performance and cash flows presented in the consolidated financial statements of the EU. The information presented in this FSDA has not been audited.
1.   CONSOLIDATED FINANCIAL STATEMENTS OF THE EU: FINANCIAL SITUATION 2018
1.1.   REVENUE

The consolidated revenue of the EU incorporates amounts related to exchange transactions and non-exchange transactions, the latter being the most significant.
The table below provides an overview of the main categories of non-exchange transactions.

Five-year trend of revenue from main non-exchange transactions (in EUR million)




As budget revenue should equal (or exceed) budget expenditure, the main driver in the revenue trend shown above is the payments made each year. In 2018 the consolidated revenue increase of 20 %, to EUR 163 billion, when compared to the previous year, was mainly due to the following:






—


an increase of EUR 27 billion in the GNI resources, or 35 % compared to the previous year. This effect primarily reflects the impact of the growth of payment appropriations in the 2018 budget. The sharp increase primarily relates to the low GNI resources of 2017 and the effect of the budget surplus from 2016, EUR 6,4 billion, recognised in ‘other revenue from non-exchange transactions’. In 2018, the budget surplus from 2017, recognised in the statement of financial performance at 31 December 2018, was much lower, EUR 0,6 billion, which explains, on the one hand the increase need for GNI resources since GNI resource is used to finance the part of the budget not covered by any other source of revenue and, on the other hand the decrease in ‘other revenue’;










—


an increase in the Traditional Own Resources of EUR 2,2 billion related to an infringement of EU legislation by the United Kingdom during the period November 2011 to October 2017. As a consequence of this infringement, late payment interest of EUR 1,3 billion was also charged, explaining the increase of the financial revenue; and










—


an increase compared to 2017 of EUR 2 billion in competition fines issued by the EU, as a result of law infringements by private entities.




1.2.   EXPENSES

The main component of expenses recognised in the consolidated financial statements is transfer payments under the shared management mode, which includes the following funds: (i) European Agricultural Guarantee Fund (EAGF); (ii) European Agricultural Fund for Rural Development (EAFRD) and other rural development instruments; (iii) European Regional Development Fund (ERDF) & Cohesion Fund (CF); and (iv) European Social Fund (ESF). These funds made up almost 66 % of total expenses in 2018 - the split can be found in the chart below.

Relative weight of the main expenses implemented by the Member States (shared management) for the financial year of 2018




Expenses incurred under direct management represent the budget implementation by the Commission, executive agencies and by trust funds. Under indirect management the budget is implemented by EU agencies, EU bodies, third countries, international organisations and other entities.
Expenses incurred under direct and indirect management made up approx. 19 % of total expenses (EUR 28,5 billion) and remained stable compared to the previous financial year.
The EU recognises certain future payment obligations as expenses even if they are not yet shown in the cash-based budgetary accounts. Significant amounts are shown under payables and accrued charges concerning agriculture and rural development and also under pension and employee benefits liabilities relating to pension and other post-employment rights acquired by Commissioners, MEPs and staff.
Overall, expenses increased by 16 %, to EUR 149 billion, when compared with 2017, mainly resulting from expenses from programmes implemented by Member States which rose by approx. 24 %, or EUR 19,8 billion, due to a higher level of expenses incurred in relation to the current phase of the programmes where the implementation has increased. The main programmes contributing to this increase were the ERDF & CF and ESF, which together represent an increase of EUR 17,2 billion.
1.3.   ASSETS

The most significant items on the asset side of the balance sheet relate to financial assets (loans given, available for sale financial assets, cash) and pre-financing amounts, which make up approx. 79 % of the assets of the EU.

Composition of the consolidated assets of the EU




As at 31 December 2018 the total assets were EUR 174,4 billion, reflecting an increase of approximately 5 %. The key changes were:






—


an increase of EUR 12,5 billion in the short-term receivables and recoverable amounts, directly related to the increase in 2018 revenue not cashed at the reporting date;










—


the above effect was partially compensated by a decrease in the cash and cash equivalents of EUR 6 billion (see below);










—


an increase of EUR 1 billion in financial assets mainly related to the provisioning of the Guarantee Fund for EFSI operations; and










—


an increase of EUR 0,4 billion in property, plant and equipment (PPE) arising from further developments in the space assets (Galileo and Copernicus).




In general, the EU institutions and bodies strive to keep the amounts held as cash and cash equivalents at a low level. The cash balance of EUR 18,1 billion at year-end is lower than in 2017 and is made up of the following main elements:






—


As regards own resources, the end of year treasury balance includes EUR 0,75 billion paid in advance by some of the Member States in relation to amending budget 6 adopted in 2018.










—


An amount of EUR 1,4 billion of fines imposed by the Commission for breach of competition rules, definitively cashed in 2018 and not yet included in any amending budget is also part of the year-end treasury balance.










—


The treasury balance also includes assigned revenue and other payment appropriations of EUR 7,4 billion.





Pre-financing

It should be noted that the level of pre-financing is significantly influenced by the MFF cycle – for example at the beginning of an MFF period one can expect large advances to be paid to Member States under cohesion policy. The Commission makes every effort to ensure that the levels of pre-financing are maintained at an appropriate level. A balance has to be struck between ensuring sufficient funding for the projects and the timely recognition of expenditure.
The total pre-financing (excluding other advances to Member States and contributions to the trust funds Bêkou and Africa) on the EU balance sheet amounts to EUR 43,4 billion (2017: EUR 44,3 billion), almost all of which relates to Commission activities. Some 60 % of the Commission’s pre-financing concerns shared management, which means that the implementation of the budget is delegated to Member States (the Commission retains a supervisory role).

Commission pre-financing by management mode




The most significant pre-financing amount under shared management mode relates to ERDF & Cohesion Fund (EUR 14,6 billion), which is at a similar level to 2017.

FINANCIAL INSTRUMENTS

The following items are shown in accounting terms as financial instruments in the consolidated financial statements of the EU:






—


Financial Instruments financed by the EU budget: under this type of budget implementation funds are either already disbursed to the fiduciary accounts managed by the entrusted entities and stay available (as cash and cash equivalents and debt securities) to cover future guarantee calls or have been invested in equity;










—


Financial assets held in guarantee funds for budgetary guarantees: under this type of budget implementation the EU provides guarantees to counterparts for which the funding is only partially provisioned via guarantee funds set-up by the Commission and thus creating contingent liabilities for the EU budget – see note 4.1; and










—


Loans and related borrowings for financial assistance programmes.





Financial instruments financed by the EU budget

The significance and volume of financial instruments financed by the EU budget under direct and indirect management increases from year to year. The basic concept behind this approach, in contrast to the traditional method of budget implementation by giving grants and subsidies, is that for each euro spent from the budget via financial instruments, the final beneficiary receives more than EUR 1 as financial support due to the leverage effect. This use of the EU budget aims at maximising the impact of the funds available. Financial instruments financed by the EU budget exist in the form of guarantee instruments, equity instruments and loan instruments - see the overview by MFF in the below table. Assets held in these instruments are either kept in cash and cash equivalents or invested in equity instruments and debt securities categorised as available for sale financial assets in the consolidated financial statements of the EU.
Available for sale financial assets relating to financial instruments financed by the EU budget (year-end value):



The following tables provide an overview of financial instruments financed by the EU budget per MFF and their values at 31 December 2018:








EUR million




Related to more than one MFF


Assets ( (*8))


Liabilities ( (*9))


Guarantees ( (*10))





Guarantee and risk-sharing instruments:



 


 


 




Guarantee Facility under the Western Balkan (EDIF)


37


(34)


—




 



37




(34)



—





Equity instruments:



 


 


 




European Fund for Southeast Europe (EFSE)


165


—


—




Green for Growth Fund to the Eastern Neighbourhood Region


63


(0)


—




MENA Fund for Micro-, Small and Medium Enterprises (SANAD)


25


—


—




Enterprise Innovation Fund (ENIF)


18


—


—




Enterprise Expansion Fund (ENEF)


10


—


—




Microfinance Initiative for Asia Debt Fund (MIFA)


9


—


—




 



290




(0)



—





Total




327




(34)



—





MFF 2014-2020




Assets




Liabilities




Guarantees






Guarantee and risk-sharing instruments:



 


 


 




Horizon 2020 – InnovFin Loan & Guarantee Service for R&I


1 107 


(43)


(934)




Horizon 2020 – InnovFin SME Guarantee


902


(381)


(533)




Connecting Europe Facility Debt Instrument (CEF DI)


598


(2)


(579)




COSME Loan Guarantee Facility


310


(613)


(2)




Private Finance for Energy Efficiency Instrument (PF4EE)


34


(0)


(5)




Cultural and Creative Sector Guarantee Facility


30


(12)


—




SEMED MSME Financial Inclusion Programme


25


—


(11)




Student Loan Guarantee Facility


14


(1)


—




Eastern Partnership SME Finance Facility


13


(4)


(1)




Natural Capital Financing Facility


12


(0)


(6)




Women in Business Programme in Eastern Partnership


4


—


(4)




Support for Mongolian Economic Diversification


2


—


—




Transferability & Convertibility (T&C) Facility


1


(1)


—




 



3 052 




(1 057 )




(2 075 )






Equity instruments:



 


 


 




Horizon 2020 InnovFin Equity Facility for R&I


368


(10)


—




COSME – Equity Facility for Growth


67


(2)


—




Risk Capital Facility for the Southern Neighbourhood countries


24


—


—




Climate Investor One


22


—


—




Latin American Investment Facility


12


—


—




Africa Agriculture Trade and Investment Fund


11


—


—




 



504




(12)



—





Mixed instruments:



 


 


 




Employment and Social Innovation (EaSI) Guarantee Facility and Capacity Building


73


(39)


—




EU Deep and Comprehensive Free Trade Area Facility


68


(6)


—




ElectriFI


31


—


—




Agriculture Financing Initiative


10


—


—




 



182




(44)



—





Total




3 738 




(1 113 )




(2 075 )






MFF Prior to 2014




Assets




Liabilities




Guarantees






Guarantee and risk-sharing instruments:



 


 


 




Risk Sharing Finance Facility (RSFF)


731


(65)


(642)




SME Guarantee Facility under CIP


83


(151)


—




Multi Annual Programme (MAP) for Enterprises


32


(31)


—




SME Guarantee Facility


7


—


—




European Progress Microfinance Guarantee Facility


4


(4)


—




 



857




(251)




(642)






Equity instruments:



 


 


 




High Growth and Innovative SME Facility under CIP


410


(6)


—




Multi Annual Framework Programme Equity Facility


208


—


—




European Energy Efficiency Fund


104


—


—




Global Energy Efficiency and Renewable Energy Fund


90


(20)


—




European Progress Microfinance Fund


68


—


—




Marguerite Fund


43


—


—




European Technology Start up Facility 1998 (ETF)


9


(0)


—




Technology Transfer Pilot projects


0


—


—




 



932




(26)



—





Mixed instruments:



 


 


 




Instrument of economic and financial cooperation MEDA


140


(2)


—




European Neighbourhood and Partnership Instrument (ENPI)


120


(2)


—




 



260




(4)



—





Total




2 049 




(281)




(642)






Overall Total




6 115 




(1 428 )




(2 717 )






Financial assets held in guarantee funds for budgetary guarantees

The Commission has set-up guarantee funds to cover budgetary guarantees (see note 4.1.1 of the consolidated financial statements) given to the EIB group. These guarantee funds are provisioned by payments from the EU budget so as to provide a liquidity cushion against potential losses from guaranteed operations. Payments to the guarantee funds are invested in financial instruments including debt securities, cash and term deposits. At 31 December 2018, the Commission holds financial assets in the:






—


Guarantee Fund for external actions of EUR 2,5 billion;










—


EFSI Guarantee Fund of EUR 5,5 billion; and










—


EFSD Guarantee Fund of EUR 0,3 billion.





Loans and related borrowings for financial assistance programmes

Financial support for Member States and third countries in the form of bilateral loans financed from the capital markets with the guarantee of the EU budget is provided by the Commission under decisions of the European Parliament and of the Council.
The Commission, acting on behalf of the EU, currently operates three main programmes:






—


European Financial Stabilisation Mechanism (EFSM);










—


Balance of Payments (BOP) assistance; and










—


Macro-financial assistance (MFA), under which it may grant loans.




The capital required to fund the EU lending is raised on the capital markets or with financial institutions.
At 31 December 2018, the nominal amount of the loans granted for financial assistance under the EFSM and BOP were:












 


 


 



EUR billion





 


BOP


EFSM ( (*11))


 


TOTAL




 


Latvia


Romania


Total


Ireland


Portugal


Total




Total granted


3,1


5,0 ( (*12))


8,1


22,5


26,0


48,5


56,6




Total disbursed at 31.12.2018


2,9


5,0


7,9


22,5


24,3


46,8


54,7




Total repaid at 31.12.2018


(2,2)


(4)


(6,2)


—


—


—


(6,2)




Outstanding amount at 31.12.2018


0,7


1


1,7


22,5


24,3


46,8


48,5





EFSM

EFSM was created to provide financial assistance to all Member States experiencing or seriously threatened by a severe economic financial disturbance caused by exceptional occurrences beyond their control. The EFSM was used to provide financial assistance, conditional on the implementation of reforms, to Ireland and Portugal between 2011 and 2014.
This programme expired and no additional loans can be drawn, though it remains in place for specific tasks such as the lengthening of maturities for loans to Ireland and Portugal and providing bridging loans.
The main points of the EFSM programme are as follows:
Ireland






—


Ireland requested the full total of EUR 22,5 billion granted by the EFSM in December 2010. This amount was disbursed in eight instalments between January 2011 and March 2014;










—


Ireland has the option to lengthen the maturity of the EFSM loans based on the extension of the maximum weighted average maturity to 19,5 years granted by the Council in 2013;










—


Repayments of EUR 3,4 billion and EUR 0,5 billion were scheduled for April and October 2018, respectively. Ireland requested a maturity extension and the amounts were approved and successfully borrowed in the markets in 2018. They have been rescheduled for repayment in two instalments of EUR 2,4 billion and EUR 1,5 billion in 2025 and 2033 respectively.




Portugal






—


Portugal has requested EUR 24,3 billion from a total of EUR 26 billion granted by the EFSM in May 2011. This amount was disbursed in seven instalments between May 2011 and November 2014. A repayment of EUR 0,6 billion was scheduled for October 2018 but, as in the case of Ireland, Portugal requested the extension of the maturity and the loan was refinanced in the markets with a new maturity date in 2033.





BOP

The BOP is an assistance programme designed for countries outside the euro area that are experiencing or are threatened by difficulties regarding their balance of payments. BOP assistance takes the form of medium-term loans that are conditional on the implementation of policies designed to address underlying economic problems. Typically, balance of payments assistance from the EU is offered in cooperation with the International Monetary Fund (IMF) and other international institutions or countries.
The EU medium-term financial assistance under the BOP facility was activated in November 2008 to help Hungary and subsequently Latvia and Romania, in January and May 2009 respectively, to restore market confidence for a total commitment of EUR 14,6 billion. The BOP assistance programme for Hungary expired in 2010 and has been fully repaid in 2016. Both assistance programmes for Latvia and Romania expired in 2012, hence no additional instalments can be disbursed.
Additionally, the two precautionary assistance programmes for Romania expired in 2013 and 2015 without being drawn down.
The main points are as follows:






—


During 2018, the beneficiary Member States of BOP have reimbursed on time and fully a total amount of EUR 1,45 billion out of which EUR 1,35 billion related to a capital reimbursement from Romania, the remaining being related to interest; and










—


The outstanding amount at end 2018 is EUR 1,7 billion in total, EUR 0,7 billion for Latvia and EUR 1 billion for Romania.





MFA

The MFA is a form of financial aid extended by the EU to partner countries outside the EU experiencing a balance of payments crisis. It takes the form of medium/long-term loans or grants, or a combination of these, and is only available to countries benefiting from a disbursing IMF programme.
The outstanding loans at 31 December 2018 under the MFA programme were EUR 4,4 billion at nominal amounts.
1.4.   LIABILITIES

The most significant items on the liability side of the balance sheet consist primarily of four items: (i) pension obligation and other employee benefits liabilities; (ii) borrowings; (iii) payables to third parties and (iv) accrued charges.

Composition of the liabilities on the consolidated balance sheet of the EU




As at 31 December 2018 the total liabilities were EUR 235,9 billion, remaining at the same level as the previous year.
The key changes were related to the following effects:






—


Payables fell by EUR 6,8 billion due to a decrease in amounts due to Member States related to own resources (i.e., EU budget contributions to be reimbursed at year-end following amending budget). This year there were additional contributions due from Member States;










—


A slight decrease in the financial liabilities of EUR 1 billion resulting primarily from the repayment of borrowings (EUR 1,35 billion), related to the loan provided to Romania, under the BOP programme; and










—


The above effects were offset by an increase of EUR 7,3 billion of the employee benefits liability.




Overall, all other items of the liability remained stable. It should be noted that long-term financial liabilities (borrowings) increased, offset by a similar decrease in the short-term element. This relates to an EFSM debt rescheduling for Ireland (EUR 3,9 billion) and Portugal (EUR 0,6 billion).

Total cost claims and invoices received and recognised under the payables heading of the balance sheet





Net assets

The excess of liabilities over assets does not mean that the EU institutions and bodies are in financial difficulties, rather it means that certain liabilities will be funded by future annual budgets. Many expenses are recognised under accrual accounting rules in the current year although they may be actually paid in the following or later years and funded using future budgets; the related revenues will only be accounted for in future periods. The most significant amounts to be highlighted are the EAGF activities (the bulk of which is usually paid in the first quarter of the following year) and the employee benefits liability (to be paid over the next 30 plus years).
2.   MANAGEMENT OF RISKS AND UNCERTAINTIES OF EU BUDGET IMPLEMENTATION
2.1.   MACRO-ECONOMIC ENVIRONMENT

The macro-economic environment of the EU (33) has an impact on the ability of EU Member States to meet their funding obligations towards the EU institutions and bodies and thus on the ability of the EU to continue implementing EU policies.
The European economy grew for the sixth year in a row in 2018, but the growth rate was lower than anticipated, especially in the second half of the year, due to a combination of internal and external factors. Domestic factors include the disruption of European manufacturing sector (in particular car production) in the third quarter and social tensions and fiscal policy uncertainty in some Member States. Some of the most important external factors include the increased uncertainty regarding trade policies, notably between US and China and a declining trend in global manufacturing output which resulted into weaker global trade growth, which impacted the Euro area in particular.
Despite these developments, the fundamentals of the European economy remain strong and over the next two years the economy is expected to continue growing but at a more moderate pace.
Euro area and EU GDP is estimated to have grown by 1,9 % in 2018. Euro area GDP is forecasted to grow by 1,3 % in 2019 and 1,6 % in 2020, while EU GDP growth forecast is 1,5 % in 2019 and 1,7 % in 2020.
Overall inflation averaged 1,7 % in 2018, up from 1,5 % in 2017. With oil price assumptions for 2019 and 2020 now lower than in autumn 2018, euro area inflation is forecast to moderate to 1,4 % in 2019 before picking up mildly to 1,5 % in 2020. For the EU as a whole, inflation is forecast to average 1,6 % this year and then pick up to 1,8 % in 2020.
The euro area labour market improved further in the first three quarters of 2018. The number of employed persons has reached in the third quarter of 2018 the highest level ever recorded in the euro area and in December 2018 the unemployment rate in the euro area stood at 7,9 %, its lowest level since October 2008.
Risks to the economic outlook remain substantial, as trade tensions and their uncertain evolution remain a concern. The US may be impacted by abrupt fiscal policy changes. The Chinese economy may be slowing down more sharply than anticipated. Global financial markets and many emerging markets are vulnerable to sudden changes in risk appetite and growth expectation. For the EU, the domestic factors could be more long lasting than anticipated and ‘Brexit’ remains a source of uncertainty.
On the positive side, still favourable labour market conditions could result in stronger domestic demand while a more extensive use of EU funds in recipient countries could trigger additional investments. The outlook for global GDP remains stable, with it being expected to expand at 3,8 % for the next two years.
2.2.   BUDGETARY CONTINGENT LIABILITIES FOR FINANCIAL ASSISTANCE

The EU borrowing and lending activities for financial assistance programmes are non-budget operations. In general, funds raised are on-lent back-to-back to the beneficiary country, i.e. with the same coupon, maturity and amount. Notwithstanding the back-to-back methodology, the debt service of the funding instruments is a legal obligation of the EU, which will ensure that all payments are made fully and in a timely manner. The Commission has put procedures in place to ensure the repayment of borrowings even in case of a loan default.
Borrowings of the EU constitute direct and unconditional obligations of the EU and are guaranteed by the EU Member States (budgetary contingent liabilities). Borrowings undertaken to fund loans to countries outside the EU are covered by the Guarantee Fund for external actions. Should a beneficiary Member State default, the debt service will be drawn from the available treasury balance of the Commission, if possible. If that would not be possible, the Commission would draw the necessary funds from the Member States. EU Member States are legally obliged, according to the EU own resources legislation (Article 14 of Council Regulation (EU, Euratom) No 609/2014), to make available sufficient funds to meet the EU’s obligations. Thus investors are only exposed to the credit risk of the EU, not to that of the beneficiary of loans funded. ‘Back-to-back’ lending ensures that the EU budget does not assume any interest rate or foreign exchange risk.
For each country programme, the EP, the Council and the Commission decisions determine the overall granted amount, the number of instalments to be disbursed, and the maximum (average) maturity of the loan package. Subsequently, the Commission and the beneficiary country agree the loan/funding parameters, in particular the maturity of instalments. In addition, except for the first one, all instalments of the loan depend on compliance with policy conditions, in the context of a joint EU/IMF financial assistance, which is another factor influencing the timing of funding operations. This implies that the timing and maturities of issuances are dependent on the related EU lending activity. Funding is exclusively denominated in euro and the maturity spectrum is from 3 to 30 years.
The following table provides an overview of the planned reimbursement schedule in nominal value for outstanding EFSM and BOP loan amounts at 31 December 2018:












EUR billion




 


BOP


EFSM


TOTAL




Latvia


Romania


Total


Ireland


Portugal


Total




2019


0,5


1,0


1,5


—


—


—


1,5




2021


—


—


—


3,0


6,8


9,8


9,8




2022


—


—


—


—


2,7


2,7


2,7




2023


—


—


—


2,0


1,5


3,5


3,5




2024


—


—


—


0,8


1,8


2,6


2,6




2025


0,2


—


0,2


2,4


—


2,4


2,6




2026


—


—


—


2,0


2,0


4,0


4,0




2027


—


—


—


1,0


2,0


3,0


3,0




2028


—


—


—


2,3


—


2,3


2,3




2029


—


—


—


1,0


0,4


1,4


1,4




2031


—


—


—


—


2,2


2,2


2,2




2032


—


—


—


3,0


—


3,0


3,0




2033


—


—


—


1,5


0,6


2,1


2,1




2035


—


—


—


2,0


—


2,0


2,0




2036


—


—


—


—


1,0


1,0


1,0




2038


 


 


 


 


1,8


1,8


1,8




2042


—


—


—


1,5


1,5


3,0


3,0





Total




0,7




1,0




1,7




22,5




24,3




46,8




48,5





The Inter-governmental financial stability mechanisms European Financial Stability Facility (EFSF) and European Stability Mechanism (ESM) are outside the EU Treaty framework and thus not included in the consolidated annual accounts of the EU.
2.3.   BUDGETARY GUARANTEES

The EU has given the EIB Group guarantees on loans granted outside of the EU and on debt and equity operations covered by the EFSI guarantee. At 31 December 2018, the EU discloses in the notes to its consolidated financial statements (see note 4.1.1) contingent liabilities for both guarantees, while the amounts constituting present obligations are recognised as provisions in the financial statements (see note 2.10 of the consolidated financial statements). In order to mitigate the risk that guarantee calls by the EIB Group could have on the EU budget, the EU has created dedicated guarantee funds, i.e. the Guarantee Fund for external actions and the EFSI Guarantee Fund.
The Guarantee Fund for external actions is provisioned by the EU budget so as to cover 9 % of the guaranteed loans outstanding at year-end for EIB external lending mandate activities to third countries. At 31 December 2018, the total asset value of EUR 2,5 billion covers an exposure of amounts disbursed of EUR 20,7 billion.
The EFSI Guarantee Fund started its activity in 2016. Pursuant to the amended EFSI Regulation (Regulation (EU) 2017/2396) the EFSI EU guarantee ceiling was increased to EUR 26 billion (from the initial EUR 16 billion) and the boundary for the guarantee fund decreased to 35 % (from the initial 50 %) of the total EU guarantee obligation. Therefore, the EFSI Guarantee Fund is now expected to reach a total amount of EUR 9,1 billion. The EFSI Agreement was amended in 2018, in line with the amended EFSI Regulation. The total assets that make up the EFSI Guarantee Fund at 31 December 2018 is EUR 5,5 billion and that covers an exposure of disbursed amounts of EUR 15,8 billion.
Pursuant to EFSD Regulation (Regulation (EU) 2017/1601), a new guarantee fund has been established: the EFSD Guarantee Fund. The first EU budget contributions into the fund were received in 2018 but no guarantee agreements were effective as at 31 December 2018.
2.4.   NEW ENTRANTS’ RESERVE (NER) 300

The NER 300 fund originates from the sale of the Emission Trading Scheme allowances and belongs to the Member States who use the money to finance innovative low-carbon energy demonstration projects. The Commission manages the programme on behalf of the Member States, while the EIB is responsible for the asset management of the NER 300 Fund and acts as a technical advisor, under the Cooperation Agreement with the Commission. Since neither the revenues from the allowances nor the expenses for the projects financed are part of the EU budget, these amounts are not accounted for in the EU accounts.
BUDGETARY IMPLEMENTATION REPORTS AND EXPLANATORY NOTES (34)


CONTENTS






EU BUDGET RESULT
105








STATEMENTS OF COMPARISON OF BUDGET AND ACTUAL AMOUNTS
106








NOTES TO THE BUDGETARY IMPLEMENTATION REPORTS
109










1.

THE EU BUDGET FRAMEWORK
109










1.1.

MULTIANNUAL FINANCIAL FRAMEWORK 2014-2020
109










1.2.

MFF DETAILED HEADINGS (PROGRAMMES)
110










1.3.

ANNUAL BUDGET
110










1.4.

REVENUE
111










1.5.

CALCULATION OF THE BUDGET RESULT
112










1.6.

RECONCILIATION OF ECONOMIC RESULT WITH BUDGET RESULT
113










2.

IMPLEMENTATION OF THE 2018 EU BUDGET – COMMENTARY
114










2.1.

REVENUE
114










2.2.

EXPENDITURE
115










3.

IMPLEMENTATION OF EU BUDGET REVENUE
116










3.1.

SUMMARY OF THE IMPLEMENTATION OF EU BUDGET REVENUE
116










4.

IMPLEMENTATION OF EU BUDGET EXPENDITURE
117










4.1.

MFF: BREAKDOWN & CHANGES IN COMMITMENT & PAYMENT APPROPRIATIONS
117










4.2.

MFF: IMPLEMENTATION OF COMMITMENT APPROPRIATIONS
118










4.3.

MFF: IMPLEMENTATION OF PAYMENT APPROPRIATIONS
120










4.4.

MFF: MOVEMENTS IN COMMITMENTS OUTSTANDING (RAL)
121










4.5.

MFF: COMMITMENTS OUTSTANDING BY YEAR OF ORIGIN
122










4.6.

DETAILED MFF: BREAKDOWN & CHANGES IN COMMITMENT & PAYMENT APPROPRIATIONS
123










4.7.

DETAILED MFF: IMPLEMENTATION OF COMMITMENT APPROPRIATIONS
129










4.8.

DETAILED MFF: IMPLEMENTATION OF PAYMENT APPROPRIATIONS
136










4.9.

DETAILED MFF: MOVEMENTS IN COMMITMENTS OUTSTANDING (RAL)
142










4.10.

DETAILED MFF: COMMITMENTS OUTSTANDING BY YEAR OF ORIGIN
148










5.

IMPLEMENTATION OF THE BUDGET BY INSTITUTION
153










5.1.

IMPLEMENTATION OF BUDGET REVENUE
153










5.2.

IMPLEMENTATION OF COMMITMENT APPROPRIATIONS
154










5.3.

IMPLEMENTATION OF PAYMENT APPROPRIATIONS
155










6.

IMPLEMENTATION OF THE AGENCIES’ BUDGET
156










6.1.

BUDGET REVENUE
156










6.2.

COMMITMENT AND PAYMENT APPROPRIATIONS BY AGENCY
157



EU BUDGET RESULT








EUR million




 


Note


2018


2017




Revenue for the financial year


1.1


159 318 


139 691 




Payments against current year appropriations


1.2


(154 833 )


(135 764 )




Payment appropriations carried over to year N+1


1.3


(1 675 )


(1 796 )




Cancellation of unused appropriations carried over from year N-1


1.4


106


40




Evolution of assigned revenue


1.5


(1 114 )


(1 450 )




Exchange rate differences for the year


1.6


(1)


(166)





Budget result



 



1 802 




555





The budget result of the EU is returned to the Member States in 2019 through deduction of their amounts due. It is calculated in accordance with Article 1(1) of Council Regulation (EU, Euratom) No 608/2014 of 26 May 2014 laying down implementing measures for the system of own resources of the European Union (35). More information can be found under Calculation of the budget result.






1.1


Revenue for the financial year: refers to table 3.1 ‘Summary of the implementation of EU Budget Revenue’, column 8 ‘Total Revenue’.










1.2


Payments against current year appropriations: refer to table 4.3 ‘MFF – Implementation of Payment appropriations’, column 2 ‘Payments made from adopted budget’ and column 4 ‘Payments made from assigned revenue’.










1.3


Payment appropriations carried over to year N+1: refer to table 4.3 ‘MFF – Implementation of Payment appropriations’, column 7 automatic carry-overs plus column 8 carry-over by decision.










1.4


Cancellation of unused payment appropriations carried over from year N-1: takes into account the amount of payment appropriations (automatic and on decision) at the end of previous year and current year’s ‘Payments made from carryovers’ as in column 3 of table 4.3 ‘MFF – Implementation of Payment appropriations’.










1.5


Evolution of the total assigned revenue appropriations at year-end: calculates the difference of the amount of assigned revenue appropriations at the end of previous year (plus) and the amount of assigned revenue appropriations at the end of the current year (as in column 9 of table 4.3 ‘MFF – Implementation of Payment appropriations’ - minus) to obtain the net variation of assigned revenue in the current year.










1.6


Exchange rate differences include realised and non-realised exchange rate differences.




STATEMENTS OF COMPARISON OF BUDGET AND ACTUAL AMOUNTS

Budget revenue











EUR million




 


 


Initial budget adopted


Final adopted budget


Entitlements established


Revenue




1


Own resources


142 832 


142 364 


142 373 


142 330 




 



11 - Sugar levies



—



(93)




(85)




(85)





 



12 - Customs duties




22 844 




20 165 




20 360 




20 317 





 



13 - VAT




17 250 




17 149 




17 133 




17 133 





 



14 - GNI




102 739 




105 143 




104 979 




104 979 





 



15 - Correction of budgetary imbalances



—


—



(19)




(19)





 



16 - Reduction of GNI-based contribution of the Netherlands and Sweden



—


—



6




6





3


Surpluses, balances and adjustments


—


556


581


581




4


Revenue accruing from persons working with the institutions and other union bodies


1 547 


1 547 


1 552 


1 542 




5


Revenue accruing from the administrative operation of the institutions


45


45


583


563




6


Contributions and refunds in connection with Union agreements and programmes


110


110


13 346 


12 777 




7


Interests on late payments and fines


115


115


14 592 


1 473 




8


Borrowing and lending operations


6


6


39


39




9


Miscellaneous revenue


25


25


24


13




 



Total




144 681 




144 768 




173 090 




159 318 






Budget expenditure: commitments by multiannual financial framework (MFF) heading











EUR million




MFF Heading


Initial adopted budget


Final adopted budget


Total
appropriations
available


Commitments made




1


Smart and inclusive growth


77 534 


77 532 


89 649 


87 357 




 



1a: Competitiveness for growth and jobs




22 001 




22 000 




25 864 




23 773 





 



1b: Economic, social and territorial cohesion




55 532 




55 532 




63 785 




63 585 





2


Sustainable growth: natural resources


59 285 


59 239 


62 419 


60 560 




 



of which: Market related expenditure and direct payments




43 235 




43 233 




45 284 




44 364 





3


Security and citizenship


3 493 


3 492 


4 015 


3 855 




4


Global Europe


9 569 


10 379 


11 448 


11 062 




5


Administration


9 666 


9 666 


10 508 


10 124 




 



of which: Administrative expenditure of the institutions




4 015 




4 015 




4 465 




4 280 





6


Compensations


—


—


—


—




8


Negative reserve and deficit carried over from the previous financial year


—


—


—


—




9


Special Instruments


567


388


429


180




 



Total




160 114 




160 696 




178 468 




173 139 






Budget expenditure: payments by multiannual financial framework (MFF) heading











EUR million




MFF Heading


Initial adopted budget


Final adopted budget


Total
appropriations
available


Payments made




1


Smart and inclusive growth


66 624 


66 733 


80 917 


75 876 




 



1a: Competitiveness for growth and jobs




20 097 




20 155 




25 073 




21 408 





 



1b: Economic, social and territorial cohesion




46 527 




46 578 




55 844 




54 468 





2


Sustainable growth: natural resources


56 084 


56 241 


59 648 


58 046 




 



of which: Market related expenditure and direct payments




43 189 




43 180 




45 436 




44 310 





3


Security and citizenship


2 981 


3 013 


3 305 


3 108 




4


Global Europe


8 906 


8 813 


10 788 


9 519 




5


Administration


9 666 


9 667 


11 355 


9 944 




 



of which: Administrative expenditure of the institutions




4 015 




4 015 




4 963 




4 140 





6


Compensations


—


—


—


—




8


Negative reserve and deficit carried over from the previous financial year


—


—


—


—




9


Special Instruments


420


302


340


180




 



Total




144 681 




144 768 




166 353 




156 673 





NOTES TO THE BUDGETARY IMPLEMENTATION REPORTS
1.   THE EU BUDGET FRAMEWORK
The budgetary accounts are kept in accordance with the Financial Regulation (FR) and its rules of application. The general budget is the instrument which provides for and authorises the Union’s revenue and expenditure every year, within the ceilings and other provisions laid down in the Multiannual Financial Framework in line with the legislative acts concerning multiannual programmes adopted under that framework.
1.1.   MULTIANNUAL FINANCIAL FRAMEWORK 2014-2020














EUR million




 


2014


2015


2016


2017


2018


2019


2020


Total










1.


Smart and inclusive growth






52 756 


77 986 


69 304 


73 512 


76 420 


79 924 


83 661 


513 563 










1.a


Competitiveness for growth and jobs







16 560 




17 666 




18 467 




19 925 




21 239 




23 082 




25 191 




142 130 











1.b


Economic, social and territorial cohesion







36 196 




60 320 




50 837 




53 587 




55 181 




56 842 




58 470 




371 433 











2.


Sustainable growth: natural resources






49 857 


64 692 


64 262 


60 191 


60 267 


60 344 


60 421 


420 034 





of which: market related expenditure and direct payments




43 779 




44 190 




43 951 




44 146 




44 163 




44 241 




44 264 




308 734 











3.


Security and citizenship






1 737 


2 456 


2 546 


2 578 


2 656 


2 801 


2 951 


17 725 










4.


Global Europe






8 335 


8 749 


9 143 


9 432 


9 825 


10 268 


10 510 


66 262 










5.


Administration






8 721 


9 076 


9 483 


9 918 


10 346 


10 786 


11 254 


69 584 





of which: Administrative expenditure of the institutions




7 056 




7 351 




7 679 




8 007 




8 360 




8 700 




9 071 




56 224 











6.


Compensations






29


—


—


—


—


—


—


29










8.


Negative reserve






—


—


—


—


—


—


—


—










9.


Special Instruments






—


—


—


—


—


—


—


—





Commitment appropriations




121 435 




162 959 




154 738 




155 631 




159 514 




164 123 




168 797 




1 087 197 






Total payment appropriations




135 762 




140 719 




130 694 




142 906 




154 565 




159 235 




162 406 




1 026 287 





The above table shows the Multiannual Financial Framework (MFF) ceilings at current prices. 2018 was the fifth financial year covered by the MFF 2014-2020. The overall ceiling for commitment appropriations for 2018 was EUR 159 514 million, equivalent to 1,02 % of the EU GNI, whilst the corresponding ceiling for payment appropriations was EUR 154 565 million, or 0,98 % of the EU GNI valid throughout the budgetary year 2018.
New flexibility provisions have been agreed for the 2014-2020 MFF. One of the new provisions is a possibility to transfer unspent margins under the payment ceilings to the following years – via the Global Margin for Payments in the framework of the technical adjustment of the MFF for the following year. Therefore, the unspent amount from 2016 (EUR 13 991 million in current prices) and 2017 (EUR 16 414 million in current prices) was transferred to the years 2018-2020 and the ceilings of 2016-2020 were adjusted accordingly – see the abovementioned technical adjustment of the MFF for 2018 and the technical adjustment for 2019 (COM(2018) 282 of 23 May 2018).
On 23 May 2018 the Commission adopted a Communication on technical adjustment of the financial framework for 2019 in line with movements in GNI (ESA 2010) (COM(2018) 282 of 23 May 2018).
An explanation of the various headings of the MFF is given below:

Heading 1 – Smart and inclusive growth

This heading is divided into two separate, but interlinked components:






1a


Competitiveness for growth and jobs, encompassing expenditure on research and innovation, education and training, Connecting Europe Facility, social policy, the internal market and accompanying policies.










1b


Economic, social and territorial cohesion, designed to enhance convergence of the least developed Member States and regions, to complement the EU strategy for sustainable development outside the less prosperous regions and to support inter regional cooperation.





Heading 2 – Sustainable growth: natural resources

Heading 2 includes the common agricultural and fisheries policies, and the environmental measures, in particular the Life + program.

Heading 3 – Security and citizenship

Heading 3 (Security and citizenship) reflects the growing importance attached to certain fields where the EU has been assigned particular tasks – justice and home affairs, border protection, immigration and asylum policy, public health and consumer protection, culture, youth, information and dialogue with citizens.

Heading 4 – Global Europe

Heading 4 covers all external action, including development cooperation, humanitarian aid, pre-accession and neighbourhood instruments. The EDF remains outside of the EU budget and is not part of the MFF.

Heading 5 - Administration

This heading covers administrative expenditure for all institutions, pensions and the European Schools. Administrative costs make up the total of the expenditure of institutions other than the Commission.

Heading 6 - Compensations

In accordance with the political agreement that new Member States should not become net-contributors to the budget at the very beginning of their membership, compensation was foreseen under this heading. This amount was available as transfers to them to balance their budgetary receipts and contributions.

Heading 9 – Special instruments

Flexibility mechanisms enable the EU to mobilise the necessary funds to react to unforeseen events such as crisis and emergency situations. Their scope, financial allocation and operating modalities are provided for in the MFF regulation and the Interinstitutional Agreement. In the current context of reduced expenditure, they also ensure that budgetary resources can respond to evolving priorities, so that every euro is used where it is most needed. Most of the flexibility mechanisms are therefore kept outside the MFF and the funding can be mobilised above the expenditure ceilings.
1.2.   MFF DETAILED HEADINGS (PROGRAMMES)

The headings of the MFF are further broken down into detailed headings, corresponding to the main spending programmes (e.g. Horizon 2020, Erasmus+ etc.). Underlying legal bases for budget implementation are adopted at this programme level. Programmes are the commonly used structure for reporting on implementation and results. Tables by programme are available in the budgetary implementation reports (see tables 4.6 - 4.10 below).
1.3.   ANNUAL BUDGET

Every year, the Commission estimates all the Institutions’ revenue and expenditure for the year and draws up a draft budget which it sends to the budgetary authority. On the basis of this draft budget, the Council sets out its position, which is then the subject of negotiations between the two arms of the budgetary authority. The President of the EP declares that the joint draft has been finally adopted, thus making the budget enforceable. During the year in question, amending budgets are adopted. The task of executing the budget is mainly the responsibility of the Commission.
The budget structure for the Commission consists of administrative and operational appropriations. The other Institutions have only administrative appropriations. Furthermore, the budget distinguishes between two types of appropriations: non-differentiated and differentiated. Non-differentiated appropriations are used to finance operations of an annual nature (which comply with the principle of annuality). Differentiated appropriations are used in order to reconcile the principle of annuality with the need to manage multiannual operations. Differentiated appropriations are split into commitment and payment appropriations:






—


commitment appropriations: cover the total cost of the legal obligations entered into for the current financial year for operations extending over a number of years. However, budgetary commitments for actions extending over more than one financial year may be broken down over several years into annual instalments where the basic act so provides.










—


payment appropriations: cover expenditure arising from commitments entered into in the current financial year and/or earlier financial years.




In the accounts, the types of funding are grouped into two main items:






—


Final adopted budget appropriations; and










—


Additional appropriations containing:






—


Carryovers from previous year (the financial regulation allows for a limited number of cases to carry unspent amounts from the previous year into the current year); and










—


Assigned revenue arising from reimbursements, contributions from third parties/countries to EU programmes and work performed for third parties are assigned directly to the corresponding expenditure budget lines and constitute the third pillar of funding.








All funding types together form the available appropriations.
1.4.   REVENUE

1.4.1.   
Own resources revenue


The vast majority of revenue comes from own resources, which consist of the following categories:






(1)


Traditional own resources (TOR): usually account for +/- 14 % of own resource revenue.










(2)


Value added tax (VAT) based resource: usually accounts for around 12 % of own resource revenue.










(3)


Gross national income (GNI) based resource: usually accounts for +/- 74 % of own resource revenue.




The allocation of own resources is made in accordance with the rules laid down in the Council Decision 2014/335/EU, Euratom of 26 May 2014 on the system of own resources of the European Union (ORD 2014). This decision has entered into force on 1 October 2016 and applied retroactively from 1 January 2014.
The total amount of own resources allocated to the Union to cover annual appropriations for payments shall not exceed 1,20 % of the sum of all the Member States’ GNIs.
1.4.2.   
Traditional own resources (TOR)


Traditional own resources (TOR) consist of customs duties (levied on imports from third countries) and sugar levies (paid by sugar producers to finance expenditure on the sugar common organisation of the market) levied on economic operators and collected by Member States on behalf of the EU. However, Member States keep 20 % as a compensation for their collection costs. All established traditional own resource amounts must be entered in one or other of the accounts kept by the competent authorities:






—


In the ordinary accounts provided for in Article 6(3) of Council Regulation (EU) No 609/2014: all amounts recovered or guaranteed.










—


In the separate accounts provided for also in the above Article: all amounts not yet recovered and/or not guaranteed; amounts guaranteed but challenged may also be entered in this account.




Traditional own resources must be entered in the Commission’s account with the treasury or national central bank by the Member State at the latest on the first working day following the 19th day of the second month following the month during which the entitlement was established (or recovered in the case of the separate account).
1.4.3.   
Value added tax (VAT)


Value added tax (VAT) is levied on Member States’ VAT bases, which are harmonised for this purpose in accordance with EU rules. However, the VAT base is capped at 50 % of each Member State’s GNI. The uniform VAT rate applied is fixed at 0,30 % except for the period 2014-2020 in which the rate of call for Germany, the Netherlands and Sweden was fixed at 0,15 %.
1.4.4.   
Gross national income (GNI)


The resource based on gross national income (GNI) is used to finance the part of the budget not covered by any other sources of revenue. The same percentage rate is levied on each Member States’ GNI, which is established in accordance with EU rules.
VAT and GNI-based resources are determined on the basis of forecasts of relevant bases made when the draft budget is being prepared. These forecasts are subsequently revised and updated during the budget year in question by means of an amending budget. Differences between the amounts due by the Member States by reference to the actual bases and the sums actually paid on the basis of the (revised) forecasts, either positive or negative, are called by the Commission from the Member States for the first working day of June of the second year following the budget year in question. Corrections may still be made to the actual VAT and GNI bases during the subsequent four years, unless a reservation is issued. These reservations have to be seen as potential claims on the Member States for uncertain amounts as their financial impact cannot be estimated with accuracy. When the exact amount can be determined, the corresponding VAT and GNI-based resources are called either in connection with the VAT and GNI balances exercise or by individual calls for funds.
1.4.5.   
UK correction


A budgetary imbalance correction mechanism in favour of the United Kingdom (reducing their own resource payments while increasing the payments of other Member States) was instituted by the European Council in Fontainebleau (June 1984). Germany, Austria, Sweden and Netherlands benefit from a reduced financing of the UK correction (restricted to one fourth of their normal share).
1.4.6.   
Gross reduction


The European Council of 7-8 February 2013 concluded that Denmark, the Netherlands and Sweden should benefit from gross reductions in their annual contributions based on GNI for the period 2014-2020 while Austria only benefited from gross reductions for the period 2014-2016. The annual reductions are as follows: Denmark EUR 130 million, the Netherlands EUR 695 million and Sweden EUR 185 million.
1.5.   CALCULATION OF THE BUDGET RESULT

The budget result of the EU is returned to the Member States during the following year through deduction of their amounts due for that year.
The amounts of own resources entered in the accounts are those credited during the course of the year to the accounts opened in the Commission’s name by the governments of the Member States. Revenue comprises also, in the case of a surplus, the budget result for the previous financial year. The other revenue entered in the accounts is the amount actually received during the course of the year.
For the purposes of calculating the budget result for the year, expenditure comprises payments made against the year’s appropriations plus any of the appropriations for that year that are carried over to the following year. Payments made against the year’s appropriations means payments that are made by the Accounting Officer by 31 December of the financial year. For the EAGF, payments are those effected by the Member States between 16 October N-1 and 15 October N, provided that the Accounting Officer was notified of the commitment and authorisation by 31 January N+1. EAGF expenditure may be subject to a conformity decision following controls in the Member States.
The budget result comprises two elements: the result of the EU and the result of the participation of the EFTA countries belonging to the European Economic Area (EEA). In accordance with Article 1(1) of Council Regulation (EU, Euratom) o 608/2014 laying down implementing measures for the system of own resources, this result represents the difference between:






—


total revenue received for the financial year; and










—


total payments made against current year’s appropriations plus the total amount of that year’s appropriations carried over to the following year.




The following are added to or deducted from the resulting figure:






—


the net balance of cancellations of payment appropriations carried over from previous years and any payments which, because of fluctuations in the euro rate, exceed non-differentiated appropriations carried over from the previous year;










—


the evolution of assigned revenue; and










—


the net exchange-rate gains or losses recorded during the year.




Appropriations carried over from the previous financial year in respect of contributions by and work for third parties, which by definition never lapse, are included as additional appropriations for the financial year. This explains the difference between carryovers from the previous year in the year N budget implementation reports and those carried over to the following year in the year N-1 budget implementation reports. Appropriations made available again following the repayment of payments on account are disregarded when calculating the budget result.
Payment appropriations carried over include: automatic carryovers and carryovers by decision. The cancellation of unused payment appropriations carried over from the previous year shows the cancellations of appropriations carried over automatically and by decision.
1.6.   RECONCILIATION OF ECONOMIC RESULT WITH BUDGET RESULT








EUR million




 


2018


2017





ECONOMIC RESULT OF THE YEAR




13 918 




8 082 






Revenue



 


 





Entitlements established in current year but not yet collected




(6 220 )




(4 408 )






Entitlements established in previous years and collected in current year




9 331 




10 739 






Accrued revenue (net)




(4 015 )




(257)






Expenses



 


 





Accrued expenses (net)




4 511 




3 725 






Expenses prior year paid in current year




(6 086 )




(3 574 )






Net-effect pre-financing




(8 634 )




(12 059 )






Payment appropriations carried over to next year




(2 941 )




(3 373 )






Payments made from carry-overs & cancellation of unused payment appropriations




2 098 




1 784 






Movement in provisions




3 567 




6 752 






Other




(4 175 )




(6 676 )






Economic result Agencies and ECSC




448




(179)






BUDGET RESULT OF THE YEAR




1 802 




555





In accordance with the Financial Regulation, the economic result of the year is calculated on the basis of accrual accounting principles, while the budget result is based on modified cash accounting rules. As the economic result and the budget result both cover the same underlying transactions, it is a useful control to ensure that they are reconcilable.

Reconciling items - Revenue

The actual budgetary revenue for a financial year corresponds to the revenue collected from entitlements established in the course of the year and amounts collected from entitlements established in previous years. Therefore the entitlements established in the current year but not yet collected are to be deducted from the economic result for reconciliation purposes as they do not form part of budgetary revenue. On the contrary the entitlements established in previous years and collected in current year must be added to the economic result for reconciliation purposes.
The accrued revenue mainly consists of accrued revenue for agriculture, own resources, interests and dividends. Only the net-effect, i.e. accrued revenue for current year minus reversal accrued revenue from previous year, is taken into consideration.

Reconciling items - Expenditure

The accrued expenses mainly consists of accruals made for year-end cut-off purposes, i.e. eligible expenses incurred by beneficiaries of EU funds but not yet reported to the Commission. Only the net-effect, i.e. accrued expenses for current year minus reversal accrued expenses from previous year, is taken into consideration. Payments made in the current year relating to invoices registered in prior years are part of current year’s budgetary expenditure and therefore must be added to the economic result for reconciliation purposes.
The net effect of pre-financing is the combination of (1) the new pre-financing amounts paid in the current year and recognised as budgetary expenditure of the year and (2) the clearing of the pre-financing through eligible costs accepted during the current year. The latter represent an expense in accrual terms but not in the budgetary accounts since the payment of the initial pre-financing had already been considered as a budgetary expenditure at the time of its payment.
As well as the payments made against the year’s appropriations, the appropriations for that year that are carried forward to the next year also need to be taken into account in calculating the budget result for the year (in accordance with Article 1(1) of Council Regulation (EU, Euratom) No 608/2014). The same applies for the budgetary payments made in the current year from carry-overs from previous years, and the cancellation of unused payment appropriations.
The movement in provisions relates to year-end estimates made in the financial statements (employee benefits mainly) that do not impact the budgetary accounts. Other reconciling amounts comprise different elements such as asset amortisation/depreciation, asset acquisitions, capital lease payments and financial participations for which the budgetary and accrual accounting treatments differ.
2.   IMPLEMENTATION OF THE 2018 EU BUDGET – COMMENTARY
2.1.   REVENUE

In the initial adopted EU budget, signed by the President of the European Parliament on 30 November 2017, the amount of payment appropriations was EUR 144 681 million and the amount to be financed by own resources totalled EUR 142 832 million. The revenue and expenditure estimates in the initial budget are typically adjusted during the budgetary year, such modifications being presented in amending budgets. Adjustments in the GNI-based own resources ensure that budgeted revenue matches exactly budgeted expenditure. In accordance with the principle of equilibrium, budget revenue and expenditure (payment appropriations) must be in balance.
During 2018, six amending budgets were adopted. Taking them into account, the final adopted revenue for 2018 amounted to EUR 144 767,9 million and the total financed by own resources was (EUR 142 363,7 million). The main factor for the reduction of Member States’ contributions in 2018 was the surplus from the previous financial year (EUR 555,5 million) slightly counterbalanced by a net increase of payment appropriations (EUR 86,9 million).
As far as the own resources result is concerned, the collection of traditional own resources was very close to the forecasted amounts. This is primarily because the budget estimates were modified at the time the amending budget 6/2018 was established (based mainly on the forecasts of spring 2018).
The final Member States’ VAT and GNI payments also correspond closely to the final budgetary estimate. The differences between the forecasted amounts and the amounts actually paid are due to the differences between the euro rates used for budgetary purposes and the rates in force at the time when the Member States outside the EMU actually made their payments.
As far as the VAT and GNI balances are concerned the rules are set out in Article 10 b of the Making Available Regulation (Council Regulation (EU, Euratom) No 608/2014). The procedure does not entail a budgetary amendment and therefore the Commission directly requests the Member States to pay the net amounts. The impact for the EU budget was close to zero due to this netting system.
The heading ‘Contributions and refunds in connection with EU agreements and programmes’ concerns mainly revenue from financial corrections (ESIF, EAGF and EAFRD), the participation of third countries in research programmes, the clearance of accounts in agricultural funds and other contributions and refunds to EU programmes/activities. A substantial part of this total is made up of earmarked revenue, which typically gives rise to the entering of additional appropriations on the expenditure side. In 2018, these contributions totalled (EUR 12,8 billion).
The revenue from fines relates mainly to fines in the field of competition.
2.2.   EXPENDITURE

The 2018 budget aimed to achieve the right balance between the implementation of ongoing programmes and addressing newer challenges. It therefore built on commitments made in previous years, and made use of the existing room for flexibility to respond to challenges in line with the 2014-2020 Multiannual Financial Framework (MFF). The mid-term revision of the 2014-2020 MFF increased the capacity of the EU budget to address challenges and meet future needs.
In line with the annual evolution foreseen in the MFF, appropriations proposed in the draft budget were set at EUR 160,7 billion (1,4 % higher when compared to the 2017 budget) in commitments, and EUR 144,7 billion (8 %) in payments, corresponding to 1,02 % and 0,92 % of EU GNI, respectively. Concerning payments, the abnormal payment backlog observed at the beginning of the MFF was resolved in 2016, and it was expected that many programmes will reach cruising speed, notably in ‘Economic, social and territorial cohesion’ (heading 1b of the budget).
In 2018, the Commission did not present any significant adjustments via amending budgets. The only adjustments were proposed in Amending Budget No 6 where the level of payment and commitment appropriations was adjusted in order to align it more closely to the estimates of needs in conjunction with the Global Transfer.

2018 Implementation of available appropriations

The 2018 implementation for all types of appropriations (budget, carry-overs from 2017 and assigned revenue) was 97 % for commitments and 94 % for payments. Appropriations from the budget were fully implemented in 2018 (99,9 % in commitments and 98,5 % in payments). The implementation rate rises to 99,8 % of commitment appropriations and 99,7 % of payment appropriations when assuming full consumption of the amounts carried over to 2019.
All headings reached high levels of implementation. As regards the special instruments, full implementation is not an objective as they are only mobilised in crises or unforeseen circumstances.

Outstanding Commitments

Outstanding commitments (RAL, committed amounts not yet paid for) stood at EUR 281,2 billion at the end of 2018. The increase of RAL was lower than foreseen reaching EUR 13,5 billion, as a result of the combined effect of the additional commitment appropriations from Amending Budget No 3 (linked to the extension of the Facility for Refugees in Turkey) and a better implementation than expected of commitment and payment appropriations originating from all types of sources, i.e. voted, carried-over from 2017 and assigned revenue.
A more detailed analysis of budgetary adjustments, their relevant context, justification and impact is presented in the Commission’s Report on Budgetary and Financial Management 2018, Part A ‘Overview at budget level’ and Part B dealing with each heading of the Multiannual Financial Framework.

Budget result

Compared to the budget result of 2017, which was a historical low of EUR 0,56 billion, the budget result of 2018 is higher and amounts to EUR 1,8 billion; it arises primarily from the revenue side, where revenues from contributions and refunds in connection with Union agreements and programmes were material in 2018 (EUR 12,8 billion). Payment appropriations reached nearly full implementation (94 %), unspent amounts (5 %) were allowed for carry-over to 2019 and the amount not used is not significant.
3.   IMPLEMENTATION OF EU BUDGET REVENUE
3.1.   SUMMARY OF THE IMPLEMENTATION OF EU BUDGET REVENUE

















EUR million




Title


Income appropriations


Entitlements established


Revenue


Receipts as % of budget


Outstanding




Initial adopted budget


Final adopted budget


Current year


Carried over


Total


On
entitlements
of current year


On
entitlements
carried over


Total




 


 


1


2


3


4


5=3+4


6


7


8=6+7


9=8/2


10=5-8




1


Own resources


142 832 


142 364 


142 334 


39


142 373 


142 329 


0


142 330 


100 %


44




3


Surpluses, balances and adjustments


—


556


581


—


581


581


—


581


105 %


—




4


Revenue accruing from persons working with the institutions and other union bodies


1 547 


1 547 


1 541 


11


1 552 


1 531 


11


1 542 


100 %


10




5


Revenue accruing from the administrative operation of the institutions


45


45


559


24


583


545


18


563


1 250  %


20




6


Contributions and refunds in connection with Union agreements and programmes


110


110


13 021 


324


13 346 


12 619 


157


12 777 


11 615  %


569




7


Interests on late payments and fines


115


115


6 778 


7 814 


14 592 


897


576


1 473 


1 281  %


13 119 




8


Borrowing and lending operations


6


6


24


15


39


24


15


39


631 %


—




9


Miscellaneous revenue


25


25


17


6


24


12


1


13


53 %


10




 



Total




144 681 




144 768 




164 856 




8 234 




173 090 




158 539 




779




159 318 




110 %




13 771 





4.   IMPLEMENTATION OF EU BUDGET EXPENDITURE
4.1.   MFF: BREAKDOWN & CHANGES IN COMMITMENT & PAYMENT APPROPRIATIONS



















EUR million




MFF Heading


Commitment appropriations


Payment appropriations




Budget appropriations


Additional appropriations


Total approp. available


Budget appropriations


Additional appropriations


Total approp. available




Initial adopted budget


Amending budgets & transfers


Final adopted budget


Carry-overs


Assigned revenue


Initial adopted budget


Amending budgets & transfers


Final adopted budget


Carry-overs


Assigned revenue




1


2


3=1+2


4


5


6=3+4+5


7


8


9=7+8


10


11


12=9+10+11




1


Smart and inclusive growth


77 534 


(2)


77 532 


123


11 994 


89 649 


66 624 


108


66 733 


120


14 064 


80 917 




 



1a: Competitiveness for growth and jobs




22 001 




(2)




22 000 




4




3 861 




25 864 




20 097 




57




20 155 




108




4 811 




25 073 





 



1b: Economic, social and territorial cohesion




55 532 



—



55 532 




119




8 133 




63 785 




46 527 




51




46 578 




13




9 253 




55 844 





2


Sustainable growth: natural resources


59 285 


(46)


59 239 


451


2 729 


62 419 


56 084 


157


56 241 


663


2 744 


59 648 




 



of which: Market related expenditure and direct payments




43 235 




(1)




43 233 




451




1 601 




45 284 




43 189 




(9)




43 180 




656




1 601 




45 436 





3


Security and citizenship


3 493 


(1)


3 492 


247


276


4 015 


2 981 


32


3 013 


16


276


3 305 




4


Global Europe


9 569 


810


10 379 


64


1 005 


11 448 


8 906 


(93)


8 813 


315


1 659 


10 788 




5


Administration


9 666 


—


9 666 


11


832


10 508 


9 666 


0


9 667 


854


834


11 355 




 



of which: Administrative expenditure of the institutions




4 015 



—



4 015 




11




439




4 465 




4 015 



—



4 015 




507




441




4 963 





6


Compensations


—


—


—


—


—


—


—


—


—


—


—


—




8


Negative reserve and deficit carried over from the previous financial year


—


—


—


—


—


—


—


—


—


—


—


—




9


Special Instruments


567


(179)


388


—


41


429


420


(118)


302


0


38


340




 



Total




160 114 




583




160 696 




895




16 876 




178 468 




144 681 




87




144 768 




1 970 




19 616 




166 353 





4.2.   MFF: IMPLEMENTATION OF COMMITMENT APPROPRIATIONS




















EUR million




MFF Heading


Total
appropr.
available


Commitments made


Appropriat. carried over to 2019


Appropriations lapsing




from final adopted budget


from carry-overs


from assigned revenue


Total


%


assigned revenue


carry-overs by decision


Total


from final adopted budget


from carry-overs


from assigned revenue


Total




1


2


3


4


5=2+3+4


6=5/1


7


8


9=7+8


10


11


12


13=10+11+12




1


Smart and inclusive growth


89 649 


77 514 


114


9 729 


87 357 


97 %


2 265 


0


2 265 


18


9


0


27




 



1a: Competitiveness for growth and jobs




25 864 




21 988 




4




1 780 




23 773 




92 %




2 080 




0




2 081 




11




0




0




11





 



1b: Economic, social and territorial cohesion




63 785 




55 525 




110




7 949 




63 585 




100 %




184



—



184




7




9



—



16





2


Sustainable growth: natural resources


62 419 


58 774 


442


1 344 


60 560 


97 %


1 385 


460


1 845 


6


9


—


15




 



of which: Market related expenditure and direct payments




45 284 




42 771 




442




1 152 




44 364 




98 %




449




460




908




3




9



—



11





3


Security and citizenship


4 015 


3 491 


247


118


3 855 


96 %


158


—


158


2


—


0


2




4


Global Europe


11 448 


10 377 


64


621


11 062 


97 %


383


—


383


2


—


0


2




5


Administration


10 508 


9 545 


7


572


10 124 


96 %


259


1


260


119


5


0


124




 



of which: Administrative expenditure of the institutions




4 465 




3 939 




7




334




4 280 




96 %




105




0




105




76




5




0




81





6


Compensations


—


—


—


—


—


—


—


—


—


—


—


—


—




8


Negative reserve and deficit carried over from the previous financial year


—


—


—


—


—


—


—


—


—


—


—


—


—




9


Special Instruments


429


180


—


—


180


42 %


41


64


104


144


—


—


144




 



Total




178 468 




159 881 




873




12 385 




173 139 




97 %




4 491 




525




5 015 




291




23




0




314





4.3.   MFF: IMPLEMENTATION OF PAYMENT APPROPRIATIONS





















EUR million




MFF Heading


Total
appropr.
available


Payments made


Appropriations carried over to 2019


Appropriations lapsing




from final adopted budget


from carry-overs


from assigned revenue


Total


%


automat. carry-overs


carry-overs by decis.


assigned revenue


Total


from final adopted budget


from carry-overs


from assigned revenue


Total




1


2


3


4


5=2+3+4


6=5/1


7


8


9


10=7+8+9


11


12


13


14=11+12+13




1


Smart and inclusive growth


80 917 


66 540 


107


9 230 


75 876 


94 %


130


3


4 833 


4 966 


59


14


1


74




 



1a: Competitiveness for growth and jobs




25 073 




19 993 




97




1 318 




21 408 




85 %




117




3




3 492 




3 612 




41




11




1




53





 



1b: Economic, social and territorial cohesion




55 844 




46 547 




10




7 912 




54 468 




98 %




13



—



1 341 




1 354 




18




3



—



21





2


Sustainable growth: natural resources


59 648 


55 576 


643


1 827 


58 046 


97 %


193


460


918


1 570 


13


20


—


33




 



of which: Market related expenditure and direct payments




45 436 




42 533 




636




1 142 




44 310 




98 %




186




460




459




1 104 




2




20



—



22





3


Security and citizenship


3 305 


2 980 


11


117


3 108 


94 %


9


—


159


167


25


5


0


29




4


Global Europe


10 788 


8 711 


310


498


9 519 


88 %


65


—


1 161 


1 226 


37


5


0


42




5


Administration


11 355 


8 731 


768


445


9 944 


88 %


818


2


389


1 209 


120


82


1


203




 



of which: Administrative expenditure of the institutions




4 963 




3 435 




446




259




4 140 




83 %




508




0




182




690




76




58



—



133





6


Compensations


—


—


—


—


—


—


—


—


—


—


—


—


—


—




8


Negative reserve and deficit carried over from the previous financial year


—


—


—


—


—


—


0


—


—


—


—


—


—


—




9


Special Instruments


340


157


0


22


180


53 %


0


—


16


16


144


0


—


144




 



Total




166 353 




142 695 




1 840 




12 138 




156 673 




94 %




1 214 




465




7 475 




9 154 




398




126




2




526





4.4.   MFF: MOVEMENTS IN COMMITMENTS OUTSTANDING (RAL)
















EUR million




MFF Heading


Commitments outstanding at the end of previous year


Commitments of the current year


Total commitm. outstanding at the end of the year




Commitm. carried forward from previous year


Decommitm./
Revaluations/
Cancellations


Payments


Commitm. outstanding at year-end


Commitm. made during the year


Payments


Cancellation of commitm. which cannot be carried over


Commitm. outstanding at year-end




1


2


3


4=1+2+3


5


6


7


8=5+6+7


9=4+8




1


Smart and inclusive growth


196 837 


(1 323 )


(67 640 )


127 874 


87 357 


(8 237 )


(4)


79 117 


206 991 




 



1a: Competitiveness for growth and jobs




35 576 




(932)




(13 691 )




20 953 




23 773 




(7 717 )




(4)




16 052 




37 006 





 



1b: Economic, social and territorial cohesion




161 260 




(392)




(53 948 )




106 920 




63 585 




(520)




(0)




63 064 




169 985 





2


Sustainable growth: natural resources


37 883 


(360)


(13 466 )


24 058 


60 560 


(44 580 )


(0)


15 980 


40 037 




 



of which: Market related expenditure and direct payments




309




(14)




(228)




67




44 364 




(44 082 )



—



282




349





3


Security and citizenship


5 194 


(107)


(1 781 )


3 306 


3 855 


(1 327 )


—


2 528 


5 834 




4


Global Europe


26 478 


(667)


(6 746 )


19 064 


11 062 


(2 773 )


(1)


8 288 


27 352 




5


Administration


867


(87)


(775)


6


10 124 


(9 169 )


(0)


955


961




 



of which: Administrative expenditure of the institutions




507




(61)




(444)




2




4 280 




(3 695 )




0




584




587





6


Compensations


—


—


—


—


—


—


—


—


—




8


Negative reserve and deficit carried over from the previous financial year


—


—


—


—


—


—


—


—


—




9


Special Instruments


0


(0)


(0)


—


180


(180)


—


0


0




 



Total




267 258 




(2 544 )




(90 407 )




174 307 




173 139 




(66 265 )




(5)




106 868 




281 175 





4.5.   MFF: COMMITMENTS OUTSTANDING BY YEAR OF ORIGIN
















EUR million




MFF Heading


< 2012


2012


2013


2014


2015


2016


2017


2018


Total




1


Smart and inclusive growth


1 355 


744


5 867 


3 807 


13 803 


37 234 


65 049 


79 131 


206 991 




 



1a: Competitiveness for growth and jobs




554




289




1 645 




2 067 




2 880 




4 994 




8 521 




16 055 




37 006 





 



1b: Economic, social and territorial cohesion




801




455




4 222 




1 739 




10 923 




32 240 




56 528 




63 076 




169 985 





2


Sustainable growth: natural resources


186


56


461


311


2 138 


8 301 


12 411 


16 173 


40 037 




 



of which: Market related expenditure and direct payments



—


—


—



0




3




9




55




282




349





3


Security and citizenship


50


67


56


45


118


901


2 069 


2 528 


5 834 




4


Global Europe


1 065 


671


1 526 


1 753 


2 920 


4 697 


6 385 


8 335 


27 352 




5


Administration


—


—


0


0


—


0


3


957


961




 



of which: Administrative expenditure of the institutions




0




0




0




0




0




0




0




587




587





9


Special Instruments


—


—


—


—


—


—


(0)


0


0




 



Total




2 656 




1 538 




7 910 




5 916 




18 979 




51 133 




85 917 




107 126 




281 175 





4.6.   DETAILED MFF: BREAKDOWN & CHANGES IN COMMITMENT & PAYMENT APPROPRIATIONS



















EUR million




Programme


Commitment appropriations


Payment appropriations


 




Budget appropriations


Additional appropriations


Total approp. available


Budget appropriations


Additional appropriations


Total approp. available




Initial adopted budget


Amending budgets & transfers


Final adopted budget


Carry-overs


Assigned revenue


Initial adopted budget


Amending budgets & transfers


Final adopted budget


Carry-overs


Assigned revenue




1


2


3=1+2


4


5


6=3+4+5


7


8


9=7+8


10


11


12=9+10+11




1


European Fund for Strategic Investments (EFSI)


2 038 


—


2 038 


—


89


2 127 


1 828 


151


1 979 


—


89


2 068 




 


European satellite navigation (EGNOS/Galileo)


808


—


808


—


169


977


718


192


910


2


259


1 171 




 


International Thermonuclear Reactor (ITER)


376


—


376


—


50


426


501


148


649


1


50


699




 


European Earth Observation Programme (Copernicus)


630


—


630


—


15


645


608


(47)


561


2


15


577




 


European Solidarity Corps (ESC)


43


—


43


—


—


43


33


—


33


—


—


33




 


Nuclear Safety and Decommissioning


141


—


141


—


—


141


152


44


196


—


—


196




 


Horizon 2020


11 212 


5


11 217 


—


2 190 


13 407 


10 901 


(332)


10 570 


67


3 116 


13 753 




 


Euratom Research and Training Programme


356


(3)


353


—


123


475


315


(24)


291


20


151


462




 


Competitiveness enterprises and SMEs (COSME)


354


0


354


—


49


403


253


2


255


2


97


355




 


Education, Training and Sport (Erasmus+)


2 315 


—


2 315 


—


427


2 741 


2 146 


103


2 249 


7


441


2 697 




 


Employment and Social Innovation (EaSI)


132


—


132


—


11


143


118


(1)


117


2


10


129




 


Customs, Fiscalis and Anti-Fraud


135


4


139


—


7


146


125


(1)


124


0


7


132




 


CEF - Energy


680


—


680


—


6


686


218


43


261


1


6


267




 


CEF - Transport


1 898 


0


1 898 


—


165


2 063 


1 163 


(103)


1 060 


2


90


1 151 




 


CEF - Information & Communications Technology (ICT)


170


(1)


170


4


5


178


142


(53)


89


0


4


94




 


Energy projects for economic recovery (EERP)


—


—


—


—


53


53


210


(52)


158


—


48


205




 


Decentralised agencies


316


(5)


311


—


25


336


318


(11)


307


—


25


332




 


Other actions and programmes


176


(2)


174


—


473


647


153


19


172


1


400


573




 


Pilot projects and preparatory actions


92


(0)


91


—


1


93


78


(25)


52


—


1


53




 


Specific competences of the Commission


129


(0)


129


—


4


133


117


5


122


—


4


125




 


Regional convergence (Less developed regions)


27 012 


(53)


26 960 


96


4 223 


31 279 


23 388 


749


24 137 


—


4 722 


28 858 




 


Transition regions


5 739 


(10)


5 729 


—


850


6 579 


4 040 


(605)


3 435 


—


939


4 374 




 


Competitiveness (More developed regions)


8 427 


41


8 468 


—


1 370 


9 837 


7 394 


(21)


7 373 


—


1 907 


9 280 




 


Outermost and sparsely populated regions


226


—


226


—


32


258


169


88


257


—


32


289




 


Cohesion fund


9 394 


—


9 394 


—


1 325 


10 719 


8 456 


(272)


8 184 


—


1 264 


9 448 




 


European territorial cooperation


1 934 


—


1 934 


23


248


2 205 


1 235 


(160)


1 074 


—


148


1 222 




 


Technical assistance


230


22


252


—


2


253


200


2


202


12


2


215




 


European Aid to the Most Deprived (FEAD)


557


—


557


—


0


557


401


(40)


361


0


6


368




 


Youth Employment initiative


350


—


350


—


84


434


600


220


820


—


206


1 026 




 


Connecting Europe Facility (CEF)


1 655 


—


1 655 


—


—


1 655 


626


100


725


—


28


754




 


Pilot projects and preparatory actions


8


—


8


—


0


8


18


(10)


9


—


0


9




 




Total MFF Heading 1






77 534 






(2)






77 532 






123






11 994 






89 649 






66 624 






108






66 733 






120






14 064 






80 917 






2


European Agricultural Guarantee Fund (EAGF)


43 235 


(1)


43 233 


451


1 601 


45 284 


43 189 


(9)


43 180 


656


1 601 


45 436 




 


Agricultural Fund for Rural Development (EAFRD)


14 381 


(1)


14 380 


—


972


15 352 


11 852 


213


12 066 


2


862


12 929 




 


European Maritime and Fisheries Fund (EMFF)


933


—


933


—


140


1 073 


515


(7)


507


1


268


776




 


Fisheries Partnership Agreements (SFPAs) and Fisheries Management Organisations (RFMOs)


141


(47)


95


—


—


95


132


(34)


97


—


—


97




 


Environment and climate action (LIFE)


523


—


523


—


9


532


316


1


317


4


6


327




 


Decentralised agencies


57


3


60


—


8


68


57


3


60


—


8


68




 


Other actions and measures


—


—


—


—


—


—


6


—


6


—


—


6




 


Pilot projects and preparatory actions


16


—


16


—


0


16


18


(9)


8


—


0


8




 


Specific Actions


—


—


—


—


—


—


—


—


—


—


—


—




 




Total MFF Heading 2






59 285 






(46)






59 239 






451






2 729 






62 419 






56 084 






157






56 241 






663






2 744 






59 648 






3


Asylum, Migration and Integration Fund (AMF)


719


29


748


207


38


993


594


112


706


2


38


746




 


Consumer


28


—


28


—


1


29


23


6


29


1


1


31




 


Creative Europe


230


—


230


—


13


244


181


16


197


2


16


214




 


Emergency Support within the Union (IES)


200


(1)


199


—


0


199


221


12


233


0


0


233




 


Internal Security Fund


720


10


730


40


132


901


481


(48)


433


2


129


565




 


IT systems


26


(17)


10


—


3


13


13


(3)


10


—


3


13




 


Justice


47


—


47


—


1


49


36


12


48


1


1


50




 


Rights, Equality and Citizenship


63


—


63


—


2


65


47


27


73


0


2


75




 


Union Civil protection Mechanism


33


—


33


—


2


35


34


—


34


5


2


41




 


Europe for Citizens


28


—


28


—


1


28


29


—


29


0


1


29




 


Food and feed


280


(1)


279


—


5


284


248


(4)


244


1


6


252




 


Health


66


—


66


—


2


69


56


4


60


1


2


63




 


Decentralised agencies


940


(20)


920


—


76


996


908


(98)


810


—


76


886




 


Pilot projects and preparatory actions


13


(1)


11


—


0


11


18


(5)


13


—


0


13




 


Specific Actions


99


—


99


—


1


99


92


2


93


1


0


94




 




Total MFF Heading 3






3 493 






(1)






3 492 






247






276






4 015 






2 981 






32






3 013 






16






276






3 305 






4


Pre-accession assistance (IPA II)


1 649 


393


2 041 


1


106


2 149 


1 452 


(186)


1 266 


6


475


1 747 




 


Macro-financial Assistance (MFA)


42


(32)


11


—


—


11


42


(32)


10


—


—


10




 


Guarantee Fund for External Actions


138


—


138


—


110


248


138


—


138


—


110


248




 


Union Civil Protection Mechanism


16


(10)


6


—


1


7


15


(5)


11


2


1


13




 


EU Aid Volunteers initiative (EUAV)


20


(0)


20


—


—


20


17


(1)


16


0


—


16




 


Fund for Sustainable Development (EFSD)


25


—


25


—


401


426


25


—


25


275


401


701




 


European Neighbourhood Instrument (ENI)


2 367 


112


2 478 


—


40


2 518 


2 278 


(167)


2 111 


5


51


2 167 




 


Development Cooperation Instrument (DCI)


2 976 


5


2 981 


—


74


3 055 


2 735 


(78)


2 657 


14


110


2 781 




 


Partnership Instrument (PI)


140


5


145


—


6


151


101


27


128


0


7


135




 


Democracy and Human Rights (EIDHR)


193


(5)


188


—


1


190


169


22


191


3


1


195




 


Stability and Peace (IcSP)


370


(1)


370


—


9


378


325


2


327


3


12


342




 


Humanitarian aid


1 085 


332


1 417 


62


58


1 537 


1 095 


348


1 443 


5


275


1 723 




 


Common Foreign and Security Policy (CFSP)


328


20


348


—


39


387


292


(0)


292


0


52


345




 


Nuclear Safety Cooperation (INSC)


33


—


33


—


0


33


45


(7)


39


1


1


40




 


Decentralised agencies


20


—


20


—


0


20


20


—


20


—


0


20




 


Other actions and programmes


83


(3)


80


—


158


238


75


(5)


70


0


162


232




 


Pilot projects and preparatory actions


9


(6)


3


1


1


4


14


(5)


9


—


1


10




 


Specific Actions


74


1


75


—


0


76


68


(6)


61


—


0


62




 




Total MFF Heading 4






9 569 






810






10 379 






64






1 005 






11 448 






8 906 






(93)






8 813 






315






1 659 






10 788 






5


Pensions


1 893 


(0)


1 893 


—


2


1 894 


1 893 


(0)


1 893 


—


2


1 894 




 


European schools


192


(9)


183


—


15


199


192


(9)


183


0


15


199




 


Decentralised agencies


—


—


—


—


—


—


—


—


—


—


—


—




 


Pilot projects and preparatory actions


4


—


4


—


0


4


4


(1)


4


1


0


4




 


Commission administrative expenditure


3 562 


9


3 571 


—


376


3 947 


3 562 


10


3 572 


346


377


4 294 




 


Administrative expenditure of Other Institutions


4 015 


—


4 015 


11


439


4 465 


4 015 


—


4 015 


507


441


4 963 




 




Total MFF Heading 5






9 666 




—




9 666 






11






832






10 508 






9 666 






0






9 667 






854






834






11 355 






6


Compensations


—


—


—


—


—


—


—


—


—


—


—


—




 




Total MFF Heading 6




—


—


—


—


—


—


—


—


—


—


—


—




8


Negative reserve


—


—


—


—


—


—


—


—


—


—


—


—




 


Deficit carried over


—


—


—


—


—


—


—


—


—


—


—


—




 




Total MFF Heading 8




—


—


—


—


—


—


—


—


—


—


—


—




9


Emergency Aid Reserve (EAR)


345


(310)


34


—


—


34


345


(225)


120


—


—


120




 


European Globalisation Adjustment Fund (EGF)


172


—


172


—


41


213


25


(19)


6


0


38


44




 


European Union Solidarity Fund (EUSF)


50


132


182


—


—


182


50


127


177


—


—


177




 




Total MFF Heading 9






567






(179)






388




—




41






429






420






(118)






302






0






38






340






 



Total




160 114 




583




160 696 




895




16 876 




178 468 




144 681 




87




144 768 




1 970 




19 616 




166 353 





4.7.   DETAILED MFF: IMPLEMENTATION OF COMMITMENT APPROPRIATIONS




















EUR million




Programme


Total
appropr.
available


Commitments made


Appropriat. carried over to 2019


Appropriations lapsing




from final adopted budget


from carry-overs


from assigned revenue


Total


%


assigned revenue


carry-overs by decision


Total


from final adopted budget


from carry-overs


from assigned revenue


Total




1


2


3


4


5=2+3+4


6=5/1


7


8


9=7+8


10


11


12


13=10+11+12




1


European Fund for Strategic Investments (EFSI)


2 127 


2 038 


—


59


2 097 


99 %


30


—


30


0


—


—


0




 


European satellite navigation (EGNOS/Galileo)


977


808


—


84


892


91 %


85


—


85


0


—


—


0




 


International Thermonuclear Reactor (ITER)


426


376


—


18


394


92 %


32


—


32


—


—


—


—




 


European Earth Observation Programme (Copernicus)


645


630


—


15


645


100 %


0


—


0


—


—


—


—




 


European Solidarity Corps (ESC)


43


43


—


—


43


99 %


—


0


0


(0)


—


—


(0)




 


Nuclear Safety and Decommissioning


141


141


—


—


141


100 %


—


—


—


—


—


—


—




 


Horizon 2020


13 407 


11 214 


—


1 040 


12 254 


91 %


1 149 


—


1 149 


3


—


0


3




 


Euratom Research and Training Programme


475


353


—


45


397


84 %


78


—


78


0


—


—


0




 


Competitiveness enterprises and SMEs (COSME)


403


354


—


37


391


97 %


12


—


12


0


—


—


0




 


Education, Training and Sport (Erasmus+)


2 741 


2 315 


—


258


2 573 


94 %


168


—


168


—


—


—


—




 


Employment and Social Innovation (EaSI)


143


129


—


5


134


94 %


6


—


6


2


—


0


2




 


Customs, Fiscalis and Anti-Fraud


146


138


—


1


139


95 %


6


—


6


1


—


—


1




 


CEF - Energy


686


680


—


0


680


99 %


6


—


6


0


—


—


0




 


CEF - Transport


2 063 


1 898 


—


89


1 986 


96 %


76


—


76


0


—


—


0




 


CEF - Information & Communications Technology (ICT)


178


170


4


5


178


100 %


0


—


0


0


0


—


0




 


Energy projects for economic recovery (EERP)


53


—


—


—


—


—


53


—


53


—


—


—


—




 


Decentralised agencies


336


311


—


15


326


97 %


10


—


10


0


—


—


0




 


Other actions and programmes


647


174


—


107


281


43 %


366


—


366


1


—


0


1




 


Pilot projects and preparatory actions


93


91


—


1


92


99 %


0


—


0


1


—


—


1




 


Specific competences of the Commission


133


125


—


3


128


96 %


1


—


1


3


—


—


3




 


Regional convergence (Less developed regions)


31 279 


26 960 


87


4 103 


31 150 


100 %


120


—


120


—


9


—


9




 


Transition regions


6 579 


5 729 


—


850


6 579 


100 %


—


—


—


—


—


—


—




 


Competitiveness (More developed regions)


9 837 


8 467 


—


1 345 


9 811 


100 %


25


—


25


1


—


—


1




 


Outermost and sparsely populated regions


258


226


—


32


258


100 %


—


—


—


—


—


—


—




 


Cohesion fund


10 719 


9 394 


—


1 299 


10 693 


100 %


26


—


26


—


—


—


—




 


European territorial cooperation


2 205 


1 934 


23


236


2 193 


99 %


12


—


12


—


—


—


—




 


Technical assistance


253


246


—


1


247


97 %


1


—


1


6


—


—


6




 


European Aid to the Most Deprived (FEAD)


557


557


—


—


557


100 %


0


—


0


0


—


—


0




 


Youth Employment initiative


434


350


—


84


434


100 %


—


—


—


—


—


—


—




 


Connecting Europe Facility (CEF)


1 655 


1 655 


—


—


1 655 


100 %


—


—


—


—


—


—


—




 


Pilot projects and preparatory actions


8


8


—


0


8


100 %


0


—


0


0


—


—


0




 




Total MFF Heading 1






89 649 






77 514 






114






9 729 






87 357 






97 %






2 265 






0






2 265 






18






9






0






27






2


European Agricultural Guarantee Fund (EAGF)


45 284 


42 771 


442


1 152 


44 364 


98 %


449


460


908


3


9


—


11




 


Agricultural Fund for Rural Development (EAFRD)


15 352 


14 380 


—


47


14 427 


94 %


925


—


925


1


—


—


1




 


European Maritime and Fisheries Fund (EMFF)


1 073 


931


—


139


1 070 


100 %


1


—


1


2


—


—


2




 


Fisheries Partnership Agreements (SFPAs) and Fisheries Management Organisations (RFMOs)


95


94


—


—


94


100 %


—


—


—


0


—


—


0




 


Environment and climate action (LIFE)


532


522


—


0


522


98 %


9


—


9


0


—


—


0




 


Decentralised agencies


68


60


—


6


66


97 %


2


—


2


—


—


—


—




 


Other actions and measures


—


—


—


—


—


—


—


—


—


—


—


—


—




 


Pilot projects and preparatory actions


16


16


—


—


16


100 %


0


—


0


0


—


—


0




 


Specific Actions


—


—


—


—


—


—


—


—


—


—


—


—


—




 




Total MFF Heading 2






62 419 






58 774 






442






1 344 






60 560 






97 %






1 385 






460






1 845 






6






9




—




15






3


Asylum, Migration and Integration Fund (AMF)


993


747


207


33


986


99 %


6


—


6


1


—


—


1




 


Consumer


29


28


—


1


29


100 %


0


—


0


0


—


—


0




 


Creative Europe


244


230


—


9


239


98 %


5


—


5


0


—


—


0




 


Emergency Support within the Union (IES)


199


199


—


—


199


100 %


0


—


0


—


—


—


—




 


Internal Security Fund


901


729


40


30


799


89 %


102


—


102


1


—


—


1




 


IT systems


13


10


—


2


12


93 %


1


—


1


0


—


—


0




 


Justice


49


47


—


1


48


99 %


0


—


0


0


—


—


0




 


Rights, Equality and Citizenship


65


63


—


1


64


98 %


1


—


1


0


—


—


0




 


Union Civil protection Mechanism


35


33


—


1


35


98 %


1


—


1


0


—


—


0




 


Europe for Citizens


28


28


—


0


28


99 %


0


—


0


0


—


—


0




 


Food and feed


284


279


—


2


281


99 %


3


—


3


—


—


—


—




 


Health


69


66


—


2


68


99 %


1


—


1


0


—


0


0




 


Decentralised agencies


996


920


—


36


956


96 %


39


—


39


—


—


—


—




 


Pilot projects and preparatory actions


11


11


—


—


11


100 %


0


—


0


0


—


—


0




 


Specific Actions


99


99


—


1


99


100 %


0


—


0


0


—


—


0




 




Total MFF Heading 3






4 015 






3 491 






247






118






3 855 






96 %






158




—




158






2




—




0






2






4


Pre-accession assistance (IPA II)


2 149 


2 041 


1


55


2 097 


98 %


52


—


52


1


—


—


1




 


Macro-financial Assistance (MFA)


11


10


—


—


10


97 %


—


—


—


0


—


—


0




 


Guarantee Fund for External Actions


248


138


—


—


138


56 %


110


—


110


—


—


—


—




 


Union Civil Protection Mechanism


7


6


—


1


7


100 %


0


—


0


0


—


0


0




 


EU Aid Volunteers initiative (EUAV)


20


20


—


—


20


100 %


—


—


—


0


—


—


0




 


Fund for Sustainable Development (EFSD)


426


25


—


300


325


76 %


101


—


101


—


—


—


—




 


European Neighbourhood Instrument (ENI)


2 518 


2 478 


—


23


2 501 


99 %


17


—


17


0


—


—


0




 


Development Cooperation Instrument (DCI)


3 055 


2 981 


—


34


3 015 


99 %


40


—


40


0


—


—


0




 


Partnership Instrument (PI)


151


145


—


1


146


96 %


5


—


5


0


—


—


0




 


Democracy and Human Rights (EIDHR)


190


188


—


1


189


100 %


1


—


1


0


—


—


0




 


Stability and Peace (IcSP)


378


369


—


3


373


99 %


5


—


5


0


—


—


0




 


Humanitarian aid


1 537 


1 417 


62


54


1 533 


100 %


5


—


5


0


—


—


0




 


Common Foreign and Security Policy (CFSP)


387


348


—


23


371


96 %


16


—


16


0


—


—


0




 


Nuclear Safety Cooperation (INSC)


33


33


—


—


33


100 %


0


—


0


0


—


—


0




 


Decentralised agencies


20


20


—


0


20


100 %


0


—


0


—


—


—


—




 


Other actions and programmes


238


80


—


128


208


87 %


31


—


31


0


—


—


0




 


Pilot projects and preparatory actions


4


3


1


—


3


85 %


1


—


1


—


—


—


—




 


Specific Actions


76


75


—


0


76


100 %


0


—


0


0


—


—


0




 




Total MFF Heading 4






11 448 






10 377 






64






621






11 062 






97 %






383




—




383






2




—




0






2






5


Pensions


1 894 


1 877 


—


2


1 879 


99 %


0


—


0


15


—


—


15




 


European schools


199


178


—


13


190


96 %


3


—


3


6


—


—


6




 


Decentralised agencies


—


—


—


—


—


—


—


—


—


—


—


—


—




 


Pilot projects and preparatory actions


4


3


—


0


4


100 %


0


—


0


0


—


—


0




 


Commission administrative expenditure


3 947 


3 548 


—


224


3 772 


96 %


151


1


152


22


—


0


22




 


Administrative expenditure of Other Institutions


4 465 


3 939 


7


334


4 280 


96 %


105


0


105


76


5


0


81




 




Total MFF Heading 5






10 508 






9 545 






7






572






10 124 






96 %






259






1






260






119






5






0






124






6


Compensations


—


—


—


—


—


—


—


—


—


—


—


—


—




 




Total MFF Heading 6




—


—


—


—


—


—


—


—


—


—


—


—


—




8


Negative reserve


—


—


—


—


—


—


—


—


—


—


—


—


—




 


Deficit carried over


—


—


—


—


—


—


—


—


—


—


—


—


—




 




Total MFF Heading 8




—


—


—


—


—


—


—


—


—


—


—


—


—




9


Emergency Aid Reserve (EAR)


34


—


—


—


—


—


—


34


34


—


—


—


—




 


European Globalisation Adjustment Fund (EGF)


213


28


—


—


28


13 %


41


—


41


144


—


—


144




 


European Union Solidarity Fund (EUSF)


182


152


—


—


152


84 %


—


30


30


—


—


—


—




 




Total MFF Heading 9






429






180




—


—




180






42 %






41






64






104






144




—


—




144






 



Total




178 468 




159 881 




873




12 385 




173 139 




97 %




4 491 




525




5 015 




291




23




0




314





4.8.   DETAILED MFF: IMPLEMENTATION OF PAYMENT APPROPRIATIONS





















EUR million




Programme


Total
appropr.
available


Payments made


Appropriations carried over to 2019


Appropriations lapsing




from final adopted budget


from carry-overs


from assigned revenue


Total


%


automat. carry overs


carry-overs by decis.


assigned revenue


Total


from final adopted budge


from carry-overs


from assigned revenue


Total




1


2


3


4


5=2+3+4


6=5/1


7


8


9


10=7+8+9


11


12


13


14=11+12+13




1


European Fund for Strategic Investments (EFSI)


2 068 


1 979 


—


59


2 038 


99 %


0


—


30


30


0


—


—


0




 


European satellite navigation (EGNOS/Galileo)


1 171 


908


2


54


964


82 %


2


—


205


207


0


0


—


0




 


International Thermonuclear Reactor (ITER)


699


648


1


18


666


95 %


1


—


32


33


0


0


—


0




 


European Earth Observation Programme (Copernicus)


577


559


2


15


576


100 %


2


—


0


2


0


0


0


0




 


European Solidarity Corps (ESC)


33


26


—


—


26


78 %


4


3


—


7


—


—


—


—




 


Nuclear Safety and Decommissioning


196


196


—


—


196


100 %


—


—


—


—


0


—


—


0




 


Horizon 2020


13 753 


10 492 


61


766


11 319 


82 %


75


—


2 349 


2 424 


2


7


1


10




 


Euratom Research and Training Programme


462


273


18


26


317


69 %


19


—


125


143


0


2


—


2




 


Competitiveness enterprises and SMEs (COSME)


355


252


2


46


300


85 %


3


—


51


54


0


0


—


0




 


Education, Training and Sport (Erasmus+)


2 697 


2 242 


7


118


2 366 


88 %


7


—


323


330


(0)


0


0


0




 


Employment and Social Innovation (EaSI)


129


115


1


4


120


93 %


1


—


6


7


1


1


0


2




 


Customs, Fiscalis and Anti-Fraud


132


118


0


1


120


91 %


0


—


6


6


6


0


—


6




 


CEF - Energy


267


258


1


6


264


99 %


1


—


0


1


2


0


—


2




 


CEF - Transport


1 151 


1 058 


2


77


1 137 


99 %


1


—


12


13


1


0


—


1




 


CEF - Information & Communications Technology (ICT)


94


76


0


3


80


85 %


0


—


0


1


13


0


0


13




 


Energy projects for economic recovery (EERP)


205


150


—


9


159


77 %


0


—


39


39


7


—


—


7




 


Decentralised agencies


332


307


—


15


322


97 %


0


—


10


10


0


—


—


0




 


Other actions and programmes


573


169


1


98


269


47 %


1


—


302


303


2


0


0


2




 


Pilot projects and preparatory actions


53


48


—


1


49


92 %


0


—


0


0


4


—


—


4




 


Specific competences of the Commission


125


119


—


2


121


97 %


0


—


1


1


3


—


0


3




 


Regional convergence (Less developed regions)


28 858 


24 137 


—


3 962 


28 099 


97 %


0


—


760


760


—


—


—


0




 


Transition regions


4 374 


3 435 


—


787


4 223 


97 %


0


—


151


151


—


—


—


(0)




 


Competitiveness (More developed regions)


9 280 


7 373 


—


1 742 


9 115 


98 %


0


—


165


165


—


—


—


0




 


Outermost and sparsely populated regions


289


257


—


26


283


98 %


0


—


6


6


—


—


—


0




 


Cohesion fund


9 448 


8 184 


—


1 045 


9 229 


98 %


0


—


219


219


—


—


—


(0)




 


European territorial cooperation


1 222 


1 074 


—


116


1 190 


97 %


0


—


32


32


—


—


—


0




 


Technical assistance


215


185


10


1


196


91 %


13


—


1


13


4


3


—


6




 


European Aid to the Most Deprived (FEAD)


368


347


0


6


354


96 %


0


—


0


0


14


0


—


14




 


Youth Employment initiative


1 026 


820


—


200


1 020 


99 %


0


—


6


6


—


—


—


—




 


Connecting Europe Facility (CEF)


754


725


—


27


752


100 %


—


—


1


1


1


—


—


1




 


Pilot projects and preparatory actions


9


9


—


0


9


99 %


0


—


—


—


0


—


—


0




 




Total MFF Heading 1






80 917 






66 540 






107






9 230 






75 876 






94 %






130






3






4 833 






4 966 






59






14






1






74






2


European Agricultural Guarantee Fund (EAGF)


45 436 


42 533 


636


1 142 


44 310 


98 %


186


460


459


1 104 


2


20


—


22




 


Agricultural Fund for Rural Development (EAFRD)


12 929 


12 055 


2


409


12 467 


96 %


2


—


453


455


8


0


—


8




 


European Maritime and Fisheries Fund (EMFF)


776


506


1


267


774


100 %


1


—


1


2


0


0


—


0




 


Fisheries Partnership Agreements (SFPAs) and Fisheries Management Organisations (RFMOs)


97


97


—


—


97


100 %


0


—


—


—


—


—


—


—




 


Environment and climate action (LIFE)


327


311


4


2


317


97 %


4


—


4


8


2


0


—


2




 


Decentralised agencies


68


60


—


6


66


97 %


0


—


2


2


—


—


—


(0)




 


Other actions and measures


6


6


—


—


6


100 %


0


—


—


—


—


—


—


—




 


Pilot projects and preparatory actions


8


8


—


—


8


93 %


0


—


0


0


1


—


—


1




 


Specific Actions


—


—


—


—


—


—


0


—


—


—


—


—


—


—




 




Total MFF Heading 2






59 648 






55 576 






643






1 827 






58 046 






97 %






193






460






918






1 570 






13






20




—




33






3


Asylum, Migration and Integration Fund (AMF)


746


704


2


32


738


99 %


1


—


5


7


1


0


—


1




 


Consumer


31


27


0


1


28


92 %


1


—


0


1


1


0


—


2




 


Creative Europe


214


196


2


9


206


96 %


1


—


7


8


0


0


0


0




 


Emergency Support within the Union (IES)


233


226


0


—


226


97 %


0


—


0


0


7


0


—


7




 


Internal Security Fund


565


424


2


29


454


80 %


1


—


100


102


8


0


—


8




 


IT systems


13


10


—


3


13


98 %


0


—


0


0


—


—


—


—




 


Justice


50


46


0


1


47


94 %


1


—


0


1


2


0


0


2




 


Rights, Equality and Citizenship


75


72


0


1


73


97 %


0


—


1


1


1


0


0


1




 


Union Civil protection Mechanism


41


31


2


1


34


83 %


0


—


1


1


3


3


—


6




 


Europe for Citizens


29


28


0


0


29


98 %


0


—


0


0


0


0


—


0




 


Food and feed


252


244


1


3


247


98 %


1


—


3


4


0


0


—


0




 


Health


63


59


1


1


61


98 %


1


—


1


1


0


0


0


0




 


Decentralised agencies


886


810


—


36


846


96 %


0


—


39


39


0


—


—


0




 


Pilot projects and preparatory actions


13


11


—


—


11


89 %


0


—


0


0


1


—


—


1




 


Specific Actions


94


92


0


0


93


98 %


1


—


0


1


1


0


—


1




 




Total MFF Heading 3






3 305 






2 980 






11






117






3 108 






94 %






9




—




159






167






25






5






0






29






4


Pre-accession assistance (IPA II)


1 747 


1 236 


6


205


1 446 


83 %


6


—


270


276


24


1


—


25




 


Macro-financial Assistance (MFA)


10


5


—


—


5


50 %


0


—


—


—


5


—


—


5




 


Guarantee Fund for External Actions


248


138


—


—


138


56 %


—


—


110


110


—


—


—


—




 


Union Civil Protection Mechanism


13


6


2


1


9


64 %


0


—


0


0


4


0


0


5




 


EU Aid Volunteers initiative (EUAV)


16


16


0


—


16


99 %


—


—


—


—


0


0


—


0




 


Fund for Sustainable Development (EFSD)


701


—


275


0


275


39 %


25


—


401


426


—


—


—


—




 


European Neighbourhood Instrument (ENI)


2 167 


2 106 


5


34


2 145 


99 %


5


—


17


22


0


1


—


1




 


Development Cooperation Instrument (DCI)


2 781 


2 641 


12


31


2 684 


97 %


16


—


79


95


0


2


—


2




 


Partnership Instrument (PI)


135


127


0


3


130


96 %


0


—


5


5


0


0


—


0




 


Democracy and Human Rights (EIDHR)


195


188


2


1


191


98 %


3


—


0


4


0


1


—


1




 


Stability and Peace (IcSP)


342


324


2


8


334


98 %


4


—


4


8


0


0


—


1




 


Humanitarian aid


1 723 


1 437 


5


63


1 506 


87 %


6


—


212


217


0


0


—


0




 


Common Foreign and Security Policy (CFSP)


345


292


0


24


316


92 %


0


—


28


28


0


0


—


0




 


Nuclear Safety Cooperation (INSC)


40


38


1


1


40


99 %


1


—


—


1


0


0


—


0




 


Decentralised agencies


20


20


—


0


20


100 %


0


—


0


0


—


—


—


0




 


Other actions and programmes


232


69


0


127


197


85 %


0


—


35


35


0


0


—


0




 


Pilot projects and preparatory actions


10


8


—


0


8


88 %


0


—


1


1


1


—


—


1




 


Specific Actions


62


60


—


0


61


98 %


0


—


0


0


1


—


—


1




 




Total MFF Heading 4






10 788 






8 711 






310






498






9 519 






88 %






65




—




1 161 






1 226 






37






5






0






42






5


Pensions


1 894 


1 877 


—


2


1 879 


99 %


—


—


0


0


15


—


—


15




 


European schools


199


178


0


10


188


94 %


—


—


5


5


6


0


—


6




 


Decentralised agencies


—


—


—


—


—


—


—


—


—


—


—


—


—


—




 


Pilot projects and preparatory actions


4


2


1


—


3


57 %


0


1


0


1


0


0


—


1




 


Commission administrative expenditure


4 294 


3 239 


322


174


3 734 


87 %


310


1


202


513


22


24


1


47




 


Administrative expenditure of Other Institutions


4 963 


3 435 


446


259


4 140 


83 %


508


0


182


690


76


58


—


133




 




Total MFF Heading 5






11 355 






8 731 






768






445






9 944 






88 %






818






2






389






1 209 






120






82






1






203






6


Compensations


—


—


—


—


—


—


—


—


—


—


—


—


—


—




 




Total MFF Heading 6




—


—


—


—


—


—


—


—


—


—


—


—


—


—




8


Negative reserve


—


—


—


—


—


—


0


—


—


—


—


—


—


—




 


Deficit carried over


—


—


—


—


—


—


0


—


—


—


—


—


—


—




 




Total MFF Heading 8




—


—


—


—


—


—




0




—


—


—


—


—


—


—




9


Emergency Aid Reserve (EAR)


120


—


—


—


—


—


0


—


—


—


120


—


—


120




 


European Globalisation Adjustment Fund (EGF)


44


5


0


22


28


64 %


0


—


16


16


0


0


—


0




 


European Union Solidarity Fund (EUSF)


177


152


—


—


152


86 %


0


—


—


—


25


—


—


25




 




Total MFF Heading 9






340






157






0






22






180






53 %






0




—




16






16






144






0




—




144






 



Total




166 353 




142 695 




1 840 




12 138 




156 673 




94 %




1 214 




465




7 475 




9 154 




398




126




2




526





4.9.   DETAILED MFF: MOVEMENTS IN COMMITMENTS OUTSTANDING (RAL)
















EUR million




Programme


Commitments outstanding at the end of previous year


Commitments of the current year


Total commitm. outstanding at the end of the year




Commitm. carried forward from previous year


Decommitm./
Revaluations/
Cancellations


Payments


Commitm. outstanding at year-end


Commitm. made during the year


Payments


Cancellation of commitm. which cannot be carried over


Commitm. outstanding at year-end




1


2


3


4=1+2+3


5


6


7


8=5+6+7


9=4+8




1


European Fund for Strategic Investments (EFSI)


2 654 


(0)


(1 963 )


691


2 097 


(75)


—


2 022 


2 714 




 


European satellite navigation (EGNOS/Galileo)


1 300 


(4)


(573)


724


892


(391)


—


501


1 224 




 


International Thermonuclear Reactor (ITER)


1 727 


(0)


(594)


1 133 


394


(72)


(0)


321


1 454 




 


European Earth Observation Programme (Copernicus)


174


(0)


(157)


16


645


(418)


—


227


243




 


European Solidarity Corps (ESC)


—


—


—


—


43


(26)


—


17


17




 


Nuclear Safety and Decommissioning


651


—


(194)


457


141


(2)


—


139


596




 


Horizon 2020


19 921 


(312)


(7 515 )


12 094 


12 254 


(3 804 )


(3)


8 447 


20 541 




 


Euratom Research and Training Programme


198


(4)


(70)


124


397


(247)


(0)


150


275




 


Competitiveness enterprises and SMEs (COSME)


908


(55)


(259)


593


391


(41)


—


350


943




 


Education, Training and Sport (Erasmus+)


704


(55)


(291)


359


2 573 


(2 076 )


—


497


855




 


Employment and Social Innovation (EaSI)


222


(15)


(102)


105


134


(18)


—


116


222




 


Customs, Fiscalis and Anti-Fraud


159


(4)


(90)


65


139


(30)


—


109


175




 


CEF - Energy


1 678 


(22)


(248)


1 407 


680


(16)


—


664


2 072 




 


CEF - Transport


3 673 


(281)


(1 085 )


2 307 


1 986 


(53)


—


1 934 


4 241 




 


CEF - Information & Communications Technology (ICT)


360


(10)


(75)


275


178


(5)


—


173


448




 


Energy projects for economic recovery (EERP)


545


(132)


(159)


254


—


—


—


—


254




 


Decentralised agencies


49


(2)


(31)


17


326


(291)


—


35


52




 


Other actions and programmes


412


(21)


(177)


215


281


(92)


—


189


404




 


Pilot projects and preparatory actions


66


(2)


(24)


39


92


(24)


—


68


107




 


Specific competences of the Commission


174


(12)


(84)


78


128


(37)


—


91


169




 


Regional convergence (Less developed regions)


82 421 


(278)


(27 946 )


54 197 


31 150 


(153)


—


30 997 


85 194 




 


Transition regions


16 151 


(6)


(4 196 )


11 949 


6 579 


(27)


—


6 553 


18 502 




 


Competitiveness (More developed regions)


25 870 


(43)


(8 944 )


16 883 


9 811 


(171)


—


9 640 


26 523 




 


Outermost and sparsely populated regions


613


—


(271)


343


258


(12)


—


246


588




 


Cohesion fund


24 398 


(11)


(9 214 )


15 173 


10 693 


(14)


—


10 678 


25 851 




 


European territorial cooperation


3 514 


(15)


(1 184 )


2 314 


2 193 


(6)


—


2 188 


4 502 




 


Technical assistance


218


(18)


(73)


126


247


(123)


(0)


124


251




 


European Aid to the Most Deprived (FEAD)


1 101 


(0)


(351)


750


557


(3)


—


554


1 304 




 


Youth Employment initiative


2 248 


(7)


(1 016 )


1 224 


434


(3)


—


431


1 655 




 


Connecting Europe Facility (CEF)


4 704 


(13)


(745)


3 946 


1 655 


(7)


—


1 648 


5 595 




 


Pilot projects and preparatory actions


22


(1)


(6)


14


8


(2)


—


6


20




 




Total MFF Heading 1






196 837 






(1 323 )






(67 640 )






127 874 






87 357 






(8 237 )






(4)






79 117 






206 991 






2


European Agricultural Guarantee Fund (EAGF)


309


(14)


(228)


67


44 364 


(44 082 )


—


282


349




 


Agricultural Fund for Rural Development (EAFRD)


32 742 


(108)


(12 174 )


20 460 


14 427 


(292)


—


14 134 


34 594 




 


European Maritime and Fisheries Fund (EMFF)


3 218 


(233)


(754)


2 231 


1 070 


(21)


(0)


1 049 


3 280 




 


Fisheries Partnership Agreements (SFPAs) and Fisheries Management Organisations (RFMOs)


21


(3)


(10)


8


94


(87)


—


7


15




 


Environment and climate action (LIFE)


1 564 


(2)


(283)


1 279 


522


(34)


—


488


1 768 




 


Decentralised agencies


3


(0)


(3)


—


66


(63)


—


3


3




 


Other actions and measures


6


—


(6)


—


—


—


—


—


—




 


Pilot projects and preparatory actions


20


(0)


(7)


12


16


(0)


—


15


28




 


Specific Actions


0


—


—


0


—


—


—


—


0




 




Total MFF Heading 2






37 883 






(360)






(13 466 )






24 058 






60 560 






(44 580 )






(0)






15 980 






40 037 






3


Asylum, Migration and Integration Fund (AMF)


2 447 


(34)


(721)


1 692 


986


(17)


—


969


2 662 




 


Consumer


41


(1)


(20)


21


29


(9)


—


20


40




 


Creative Europe


193


(7)


(91)


94


239


(115)


—


124


219




 


Emergency Support within the Union (IES)


90


(1)


(67)


22


199


(160)


—


40


62




 


Internal Security Fund


1 420 


(19)


(433)


969


799


(22)


—


777


1 746 




 


IT systems


47


(1)


(13)


34


12


(0)


—


12


46




 


Justice


90


(1)


(34)


55


48


(13)


—


35


90




 


Rights, Equality and Citizenship


115


(1)


(63)


51


64


(10)


—


54


105




 


Union Civil protection Mechanism


44


(2)


(21)


21


35


(13)


—


21


43




 


Europe for Citizens


22


(0)


(13)


9


28


(16)


—


12


21




 


Food and feed


316


(31)


(187)


98


281


(60)


—


221


319




 


Health


133


(6)


(46)


81


68


(16)


—


52


133




 


Decentralised agencies


132


(1)


(5)


126


956


(841)


—


115


242




 


Pilot projects and preparatory actions


24


(1)


(9)


14


11


(2)


—


9


24




 


Specific Actions


77


(1)


(59)


17


99


(34)


—


65


82




 




Total MFF Heading 3






5 194 






(107)






(1 781 )






3 306 






3 855 






(1 327 )




—




2 528 






5 834 






4


Pre-accession assistance (IPA II)


6 899 


(124)


(1 225 )


5 549 


2 097 


(221)


(0)


1 875 


7 425 




 


Macro-financial Assistance (MFA)


40


(0)


(0)


40


10


(5)


—


5


45




 


Guarantee Fund for External Actions


—


—


—


—


138


(138)


—


—


—




 


Union Civil Protection Mechanism


18


(1)


(6)


12


7


(3)


—


4


15




 


EU Aid Volunteers initiative (EUAV)


18


(0)


(2)


16


20


(14)


—


6


22




 


Fund for Sustainable Development (EFSD)


275


—


(275)


—


325


(0)


—


325


325




 


European Neighbourhood Instrument (ENI)


7 662 


(185)


(1 724 )


5 753 


2 501 


(421)


(0)


2 080 


7 833 




 


Development Cooperation Instrument (DCI)


8 643 


(218)


(2 418 )


6 006 


3 015 


(265)


—


2 749 


8 755 




 


Partnership Instrument (PI)


376


(6)


(113)


257


146


(17)


(0)


129


386




 


Democracy and Human Rights (EIDHR)


370


(10)


(139)


222


189


(52)


(0)


137


358




 


Stability and Peace (IcSP)


623


(34)


(220)


369


373


(114)


(0)


258


627




 


Humanitarian aid


899


(33)


(429)


437


1 533 


(1 077 )


(0)


456


893




 


Common Foreign and Security Policy (CFSP)


243


(32)


(80)


132


371


(236)


—


134


266




 


Nuclear Safety Cooperation (INSC)


122


(8)


(39)


75


33


(1)


—


32


107




 


Decentralised agencies


—


—


—


—


20


(20)


—


—


—




 


Other actions and programmes


154


(13)


(29)


113


208


(168)


—


39


152




 


Pilot projects and preparatory actions


22


(1)


(7)


13


3


(1)


—


2


16




 


Specific Actions


113


(2)


(42)


70


76


(19)


—


57


126




 




Total MFF Heading 4






26 478 






(667)






(6 746 )






19 064 






11 062 






(2 773 )






(1)






8 288 






27 352 






5


Pensions


—


—


—


—


1 879 


(1 879 )


—


—


—




 


European schools


0


(0)


(0)


—


190


(188)


—


2


2




 


Decentralised agencies


—


—


—


—


—


—


—


—


—




 


Pilot projects and preparatory actions


6


—


(2)


3


4


(0)


—


3


6




 


Commission administrative expenditure


354


(26)


(328)


0


3 772 


(3 407 )


(0)


365


366




 


Administrative expenditure of Other Institutions


507


(61)


(444)


2


4 280 


(3 695 )


0


584


587




 




Total MFF Heading 5






867






(87)






(775)






6






10 124 






(9 169 )






(0)






955






961






6


Compensations


—


—


—


—


—


—


—


—


—




 




Total MFF Heading 6




—


—


—


—


—


—


—


—


—




8


Negative reserve


—


—


—


—


—


—


—


—


—




 


Deficit carried over


—


—


—


—


—


—


—


—


—




 




Total MFF Heading 8




—


—


—


—


—


—


—


—


—




9


Emergency Aid Reserve (EAR)


—


—


—


—


—


—


—


—


—




 


European Globalisation Adjustment Fund (EGF)


0


(0)


(0)


—


28


(28)


—


0


0




 


European Union Solidarity Fund (EUSF)


—


—


—


—


152


(152)


—


—


—




 




Total MFF Heading 9






0






(0)






(0)




—




180






(180)




—




0






0






 



Total




267 258 




(2 544 )




(90 407 )




174 307 




173 139 




(66 265 )




(5)




106 868 




281 175 





4.10.   DETAILED MFF: COMMITMENTS OUTSTANDING BY YEAR OF ORIGIN
















EUR million




 


Programme


< 2012


2012


2013


2014


2015


2016


2017


2018


Total




1


European Fund for Strategic Investments (EFSI)


—


—


—


—


0


4


687


2 022 


2 714 




 


European satellite navigation (EGNOS/Galileo)


0


0


—


—


47


112


564


501


1 224 




 


International Thermonuclear Reactor (ITER)


—


—


546


—


15


306


267


321


1 454 




 


European Earth Observation Programme (Copernicus)


—


—


—


0


0


3


12


227


243




 


European Solidarity Corps (ESC)


—


—


—


—


—


—


—


17


17




 


Nuclear Safety and Decommissioning


—


—


97


72


77


103


108


139


596




 


Horizon 2020


246


273


784


1 440 


2 120 


2 908 


4 320 


8 450 


20 541 




 


Euratom Research and Training Programme


8


1


2


7


24


35


48


150


275




 


Competitiveness enterprises and SMEs (COSME)


2


4


181


6


46


113


242


350


943




 


Education, Training and Sport (Erasmus+)


0


0


1


23


43


93


199


497


855




 


Employment and Social Innovation (EaSI)


2


4


6


7


13


14


60


116


222




 


Customs, Fiscalis and Anti-Fraud


—


0


—


1


4


15


44


109


175




 


CEF - Energy


5


2


2


245


235


387


532


664


2 072 




 


CEF - Transport


13


—


6


226


192


705


1 166 


1 934 


4 241 




 


CEF - Information & Communications Technology (ICT)


—


0


—


21


34


135


85


173


448




 


Energy projects for economic recovery (EERP)


254


—


—


—


—


—


—


—


254




 


Decentralised agencies


—


—


—


—


0


1


15


35


52




 


Other actions and programmes


22


4


14


14


23


35


103


189


404




 


Pilot projects and preparatory actions


2


1


2


0


3


8


23


68


107




 


Specific competences of the Commission


0


0


4


5


5


17


46


91


169




 


Regional convergence (Less developed regions)


510


445


3 057 


651


5 465 


16 652 


27 416 


30 997 


85 194 




 


Transition regions


38


—


—


149


1 594 


4 066 


6 102 


6 553 


18 502 




 


Competitiveness (More developed regions)


53


—


626


327


1 766 


5 071 


9 040 


9 640 


26 523 




 


Outermost and sparsely populated regions


—


—


—


9


38


74


222


246


588




 


Cohesion fund


159


—


487


321


1 046 


3 598 


9 561 


10 678 


25 851 




 


European territorial cooperation


40


9


52


—


5


417


1 780 


2 199 


4 502 




 


Technical assistance


1


1


0


2


27


37


60


124


251




 


European Aid to the Most Deprived (FEAD)


—


—


—


0


36


300


415


554


1 304 




 


Youth Employment initiative


—


—


—


0


397


413


413


431


1 655 




 


Connecting Europe Facility (CEF)


—


—


—


279


550


1 608 


1 510 


1 648 


5 595 




 


Pilot projects and preparatory actions


0


—


—


1


1


4


9


6


20




 




Total MFF Heading 1






1 355 






744






5 867 






3 807 






13 803 






37 234 






65 049 






79 131 






206 991 






2


European Agricultural Guarantee Fund (EAGF)


—


—


—


0


3


9


55


282


349




 


Agricultural Fund for Rural Development (EAFRD)


34


—


293


198


1 567 


7 296 


11 072 


14 134 


34 594 




 


European Maritime and Fisheries Fund (EMFF)


9


3


96


4


358


760


1 000 


1 049 


3 280 




 


Fisheries Partnership Agreements (SFPAs) and Fisheries Management Organisations (RFMOs)


—


—


—


—


—


3


5


7


15




 


Environment and climate action (LIFE)


142


53


72


107


209


229


273


682


1 768 




 


Decentralised agencies


—


—


—


—


—


—


0


3


3




 


Other actions and measures


—


—


—


—


—


—


—


—


—




 


Pilot projects and preparatory actions


0


0


0


2


1


4


5


15


28




 


Specific Actions


—


—


—


0


0


—


—


—


0




 




Total MFF Heading 2






186






56






461






311






2 138 






8 301 






12 411 






16 173 






40 037 






3


Asylum, Migration and Integration Fund (AMF)


20


17


29


4


37


491


1 094 


969


2 662 




 


Consumer


—


0


0


1


2


4


14


20


40




 


Creative Europe


—


—


1


4


6


22


61


124


219




 


Emergency Support within the Union (IES)


—


—


—


—


—


13


9


40


62




 


Internal Security Fund


19


42


13


12


26


266


589


777


1 746 




 


IT systems


1


0


0


1


2


3


25


12


46




 


Justice


1


1


4


4


8


16


21


35


90




 


Rights, Equality and Citizenship


3


4


2


4


7


12


19


54


105




 


Union Civil protection Mechanism


—


0


—


1


2


6


12


21


43




 


Europe for Citizens


0


—


0


0


0


1


7


12


21




 


Food and feed


1


0


2


6


9


27


52


221


319




 


Health


4


1


2


5


14


22


33


52


133




 


Decentralised agencies


—


—


—


—


0


12


114


115


242




 


Pilot projects and preparatory actions


0


1


1


2


3


3


4


9


24




 


Specific Actions


0


0


0


0


0


2


15


65


82




 




Total MFF Heading 3






50






67






56






45






118






901






2 069 






2 528 






5 834 






4


Pre-accession assistance (IPA II)


349


94


522


437


971


1 475 


1 702 


1 875 


7 425 




 


Macro-financial Assistance (MFA)


—


—


—


—


—


—


40


5


45




 


Guarantee Fund for External Actions


—


—


—


—


—


—


—


—


—




 


Union Civil Protection Mechanism


—


—


—


2


2


2


6


4


15




 


EU Aid Volunteers initiative (EUAV)


—


—


—


7


3


2


4


6


22




 


Fund for Sustainable Development (EFSD)


—


—


—


—


—


—


—


325


325




 


European Neighbourhood Instrument (ENI)


426


341


485


594


783


1 367 


1 716 


2 120 


7 833 




 


Development Cooperation Instrument (DCI)


250


178


453


564


938


1 424 


2 198 


2 751 


8 755 




 


Partnership Instrument (PI)


0


8


13


37


42


70


82


133


386




 


Democracy and Human Rights (EIDHR)


5


2


9


20


35


61


90


137


358




 


Stability and Peace (IcSP)


7


9


20


36


67


88


141


258


627




 


Humanitarian aid


9


13


14


8


11


117


267


456


893




 


Common Foreign and Security Policy (CFSP)


4


14


2


24


23


21


43


134


266




 


Nuclear Safety Cooperation (INSC)


7


4


7


10


12


18


18


32


107




 


Decentralised agencies


—


—


—


—


—


—


—


—


—




 


Other actions and programmes


5


4


2


13


23


31


36


39


152




 


Pilot projects and preparatory actions


3


1


0


1


3


0


5


2


16




 


Specific Actions


1


2


1


2


7


20


37


57


126




 




Total MFF Heading 4






1 065 






671






1 526 






1 753 






2 920 






4 697 






6 385 






8 335 






27 352 






5


Pensions


—


—


—


—


—


—


—


—


—




 


European schools


—


—


—


—


—


—


0


2


2




 


Decentralised agencies


—


—


—


—


—


—


—


—


—




 


Pilot projects and preparatory actions


—


—


—


—


—


0


3


3


6




 


Commission administrative expenditure


—


—


0


0


—


0


0


365


366




 


Administrative expenditure of Other Institutions


0


0


0


0


0


0


0


587


587




 




Total MFF Heading 5




—


—




0






0




—




0






3






957






961






6


Compensations


—


—


—


—


—


—


—


—


—




 




Total MFF Heading 6




—


—


—


—


—


—


—


—


—




8


Negative reserve


—


—


—


—


—


—


—


—


—




 


Deficit carried over


—


—


—


—


—


—


—


—


—




 




Total MFF Heading 8




—


—


—


—


—


—


—


—


—




9


Emergency Aid Reserve (EAR)


—


—


—


—


—


—


—


—


—




 


European Globalisation Adjustment Fund (EGF)


—


—


—


—


—


—


0


0


0




 


European Union Solidarity Fund (EUSF)


—


—


—


—


—


—


—


—


—




 




Total MFF Heading 9




—


—


—


—


—


—




0






0






0






 



Total




2 656 




1 538 




7 910 




5 916 




18 979 




51 133 




85 917 




107 126 




281 175 





5.   IMPLEMENTATION OF THE BUDGET BY INSTITUTION
5.1.   IMPLEMENTATION OF BUDGET REVENUE
















EUR million




Institution


Income appropriations


Entitlements established


Revenue


Receipts as % of budget


Outstanding




Initial adopted budget


Final adopted budget


Current year


Carried over


Total


On entitlem. of current year


On entitlem. carried over


Total




1


2


3


4


5=3+4


6


7


8=6+7


9=8/2


10=5-8




European Parliament


164


164


197


19


217


191


3


194


118 %


23




European Council and Council


53


53


79


2


81


79


1


80


151 %


1




Commission


144 315 


144 401 


164 179 


8 210 


172 389 


157 870 


773


158 643 


110 %


13 747 




Court of Justice


56


56


53


0


53


53


0


53


96 %


0




Court of Auditors


21


21


21


0


21


21


—


21


101 %


0




Economic and Social Committee


12


12


16


0


16


16


0


16


136 %


—




Committee of the Regions


9


9


11


0


11


11


0


11


124 %


0




Ombudsman


1


1


1


0


1


1


0


1


86 %


0




European Data Protection Supervisor


1


1


1


0


1


1


0


1


78 %


—




European External Action Service


49


49


296


2


297


295


2


297


607 %


1





Total




144 681 




144 768 




164 856 




8 234 




173 090 




158 539 




779




159 318 




110 %




13 771 





The consolidated reports on the implementation of the general budget of the EU include, as in previous years, the budget implementation of all Institutions since within the EU budget a separate budget for each Institution is established.
The budget and implementation of Agencies is not consolidated within the EU budget. The Commission subsidy is part of the EU budget.
Concerning the EEAS, it should be noted that, in addition to its own budget, it also receives contributions from the Commission of EUR 141,7 million (2017: EUR 144 million) and the EDF and the Trust Funds of EUR 70,1 million (2017: EUR 72 million) covering the costs of Commission’s staff in the delegations financed under the EDF and the Trust Funds including assigned revenue generated in the year from these contributions. These budget credits are put at the disposal of the EEAS (as assigned revenue) so as to cover primarily the costs of Commission staff working in the EU delegations, these delegations being administratively managed by the EEAS.
5.2.   IMPLEMENTATION OF COMMITMENT APPROPRIATIONS



















EUR million




Institution


Total
appropriat.
available


Commitments made


Appropriations carried over to 2019


Appropriations lapsing




from final adopted budget


from carry-overs


from assigned revenue


Total


%


from assigned revenue


carry-overs by decision


Total


from final adopted budget


from carry-overs


from assigned revenue


Total




1


2


3


4


5=2+3+4


6=5/1


7


8


9=7+8


10


11


12


13=10+ 11+12




European Parliament


2 031 


1 934 


3


56


1 993 


98 %


22


0


22


16


—


0


16




European Council and Council


629


527


4


24


555


88 %


23


0


23


46


5


0


51




Commission


174 003 


155 941 


866


12 051 


168 859 


97 %


4 386 


525


4 911 


215


18


0


233




Court of Justice


411


407


0


1


407


99 %


1


0


1


3


0


0


3




Court of Auditors


146


140


0


0


141


96 %


0


0


0


6


0


0


6




Economic and Social Committee


140


134


0


4


138


99 %


0


0


0


2


0


0


2




Committee of Regions


98


95


0


2


97


99 %


0


0


0


1


0


0


1




Ombudsman


11


10


0


0


10


95 %


0


0


0


1


0


0


1




European Data Protection Supervisor


14


14


0


0


14


94 %


0


0


0


1


0


0


1




European External Action Service


984


678


0


247


925


94 %


59


0


59


1


0


0


1





Total




178 468 




159 881 




873




12 385 




173 139 




97 %




4 491 




525




5 015 




291




23




0




314





5.3.   IMPLEMENTATION OF PAYMENT APPROPRIATIONS




















EUR million




Institution


Total
approp.
available


Payments made


Appropriations carried over to 2019


Appropriations lapsing




from
final
adopted
budget


from
carryovers


from
assignedrevenue


Total


%


automatic
carry-overs


carryovers
by
decision


from assigned revenue


Total


from
final
adopted
budget


from
carryovers


from
assigned
revenue


Total




1


2


3


4


5=2+3+4


6=5/1


7


8


9


10=7+8+9


11


12


13


14




European Parliament


2 321 


1 637 


268


28


1 933 


83 %


298


0


50


347


16


24


0


41




European Council and Council


681


470


43


23


536


79 %


61


0


24


84


46


14


0


60




Commission


161 390 


139 260 


1 394 


11 879 


152 533 


95 %


706


465


7 294 


8 465 


322


68


2


392




Court of Justice


432


386


18


1


404


94 %


21


0


1


22


3


3


0


6




Court of Auditors


154


133


7


0


140


91 %


7


0


0


8


6


1


0


6




Economic and Social Committee


150


126


8


3


137


91 %


8


0


1


9


2


2


0


4




Committee of Regions


108


87


8


1


96


90 %


8


0


1


9


1


1


0


2




Ombudsman


12


10


1


0


11


91 %


0


0


0


0


1


0


0


1




European Data Protection Supervisor


16


11


1


0


12


75 %


2


0


0


2


1


1


0


2




European External Action Service


1 090 


575


93


202


870


80 %


102


0


105


208


1


11


—


12





Total




166 353 




142 695 




1 840 




12 138 




156 673 




94 %




1 214 




465




7 475 




9 154 




398




126




2




526





6.   IMPLEMENTATION OF THE AGENCIES’ BUDGET
The reports below show the revenue and expenditure of the Agencies, both decentralised (also known as traditional agencies) and executive agencies.
The agencies’ revenue and expenditure are not consolidated within the EU budget. The Commission subsidy is part of the EU budget.
Other sources of revenue and expenditure made thereof by the agencies are not added into the EU budget accounts. Each agency presents its own accounts. The information presented in the tables below provides the global financial picture of these EU bodies.
6.1.   BUDGET REVENUE









EUR million




Agency


Funding Commission Policy Area


Final adopted budget


Amounts received




Agency for the Cooperation of Energy Regulators - ACER


6


14


14




Body of European Regulators for Electronic Communications - BEREC


9


4


4




Community Plant Variety Office - CPVO


17


17


18




Consumers, Health, Agriculture and Food Executive Agency - Chafea


17


11


11




Education, Audiovisual and Culture Executive Agency - EACEA


15


50


50




European Agency for Safety and Health at Work - EU-OSHA


4


15


15




European Agency for the Operational Management of Large-Scale IT Systems in the Area of Freedom, Security and Justice - eu-LISA


18


94


97




European Asylum Support Office - EASO


18


98


98




European Aviation Safety Agency - EASA


6


198


155




European Banking Authority - EBA


12


43


44




European Border and Coast Guard Agency - Frontex


18


289


306




European Centre for Disease Prevention and Control - ECDC


17


58


58




European Centre for the Development of Vocational Training - Cedefop


15


18


18




European Chemicals Agency - ECHA


2


119


121




European Environment Agency - EEA


7


66


66




European Fisheries Control Agency - EFCA


11


17


17




European Food Safety Authority - EFSA


17


80


80




European Foundation for the Improvement of Living and Working Conditions - Eurofound


4


21


21




European Global Navigation Satellite Systems (GNSS) Agency


6


33


746




European Institute for Gender Equality - EIGE


4


8


8




European Institute of Innovation and Technology - EIT


15


370


345




European Insurance and Occupational Pensions Authority - EIOPA


12


25


25




European Maritime Safety Agency - EMSA


6


77


103




European Medicines Agency - EMA


2


338


317




European Monitoring Centre for Drugs and Drug Addiction - EMCDDA


18


16


16




European Police Office


18


137


137




European Research Council Executive Agency - ERCEA


8


49


49




European Securities and Markets Authority - ESMA


12


44


44




European Training Foundation - ETF


15


20


20




European Union Agency for Fundamental Rights - FRA


18


23


23




European Union Agency for Law Enforcement Training - CEPOL


18


9


14




European Union Agency for Network and Information Security - ENISA


9


11


12




European Union Agency for Railways


6


29


29




European Union Intellectual Property Office - EUIPO


12


403


245




European Union’s Judicial Cooperation Unit - Eurojust


33


38


38




Executive Agency for Small and Medium-sized Enterprises - EASME


6


44


44




Fusion for Energy - F4E


8


795


831




Innovation and Networks Executive Agency - INEA


6


27


27




Research Executive Agency - REA


8


70


70




Translation Centre for the Bodies of the European Union


15


47


41





Total



 



3 822 




4 377 















EUR million




Type of revenue


Final adopted budget


Amounts received




Commission subsidy


1 424 


1 425 




Fee income


746


726




Other income


1 652 


2 226 





Total




3 822 




4 377 





6.2.   COMMITMENT AND PAYMENT APPROPRIATIONS BY AGENCY










EUR million




Agency


Commitment appropriations


Payment appropriations




Total appropr. available


Commit. made


Total appropr. available


Payments made




Agency for the Cooperation of Energy Regulators - ACER


14


13


17


14




Body of European Regulators for Electronic Communications - BEREC


4


4


5


4




Community Plant Variety Office - CPVO


19


17


18


16




Consumers, Health, Agriculture and Food Executive Agency - Chafea


11


10


13


10




Education, Audiovisual and Culture Executive Agency - EACEA


50


49


56


48




European Agency for Safety and Health at Work - EU-OSHA


16


16


20


14




European Agency for the Operational Management of Large-Scale IT Systems in the Area of Freedom, Security and Justice - eu-LISA


211


154


107


94




European Asylum Support Office - EASO


103


94


106


86




European Aviation Safety Agency - EASA


237


179


244


151




European Banking Authority - EBA


44


44


47


41




European Border and Coast Guard Agency - Frontex


318


306


406


293




European Centre for Disease Prevention and Control - ECDC


59


58


69


57




European Centre for the Development of Vocational Training - Cedefop


18


18


19


18




European Chemicals Agency - ECHA


121


117


133


114




European Environment Agency - EEA


97


78


102


61




European Fisheries Control Agency - EFCA


18


17


22


19




European Food Safety Authority - EFSA


80


80


87


80




European Foundation for the Improvement of Living and Working Conditions - Eurofound


21


21


25


21




European Global Navigation Satellite Systems (GNSS) Agency


3 522 


2 428 


1 270 


828




European Institute for Gender Equality - EIGE


8


8


9


8




European Institute of Innovation and Technology - EIT


459


395


380


340




European Insurance and Occupational Pensions Authority - EIOPA


25


25


28


24




European Maritime Safety Agency - EMSA


126


114


122


91




European Medicines Agency - EMA


344


312


392


302




European Monitoring Centre for Drugs and Drug Addiction - EMCDDA


16


16


17


17




European Police Office


143


132


156


129




European Research Council Executive Agency - ERCEA


49


49


51


48




European Securities and Markets Authority - ESMA


46


46


51


44




European Training Foundation - ETF


20


20


21


20




European Union Agency for Fundamental Rights - FRA


23


23


30


23




European Union Agency for Law Enforcement Training - CEPOL


14


13


15


11




European Union Agency for Network and Information Security - ENISA


12


12


13


11




European Union Agency for Railways


30


30


34


30




European Union Intellectual Property Office - EUIPO


422


245


445


235




European Union’s Judicial Cooperation Unit - Eurojust


40


40


47


41




Executive Agency for Small and Medium-sized Enterprises - EASME


44


44


49


45




Fusion for Energy - F4E


1 019 


1 008 


847


814




Innovation and Networks Executive Agency - INEA


27


27


28


26




Research Executive Agency - REA


70


70


73


67




Translation Centre for the Bodies of the European Union


47


45


51


45





Total




7 946 




6 376 




5 625 




4 342 

















EUR million




Type of expenditure


Commitment appropriations


Payment appropriations




Total appropr. available


Commit. made


Total appropr. available


Payments made




Administrative expenses


368


352


445


334




Staff


1 220 


1 188 


1 236 


1 181 




Operational expenses


6 358 


4 836 


3 944 


2 826 





Total




7 946 




6 376 




5 625 




4 342 





GLOSSARY

Actuarial assumptions

Assumptions used to calculate the costs of future events that affect the pension liability.

Actuarial gains and losses

For a defined benefit scheme, the changes in actuarial deficits or surpluses. They arise as a result of differences between the previous actuarial assumptions and what has actually occurred and due to effects of changes in actuarial assumptions.

Administrative appropriations

Administrative appropriations cover the running costs of the Institutions and entities (staff, buildings, office equipment).

Adopted budget

Draft budget becomes the adopted budget as soon as it is approved by the Budgetary Authority.

Amending budget

Decision adopted during the budget year to amend (increase, decrease, transfer) aspects of the adopted budget of that year.

Amounts to be called from Member States

These represent expenses incurred during the reporting period that will need to be funded by future budgets, i.e. by the EU Member States. This is a consequence of the co-existence of accruals based financial statements and a cash based budget.

Annual Activity Report (AAR)

Annual Activity Reports indicate the results of operations by reference to objectives set, associated risks and the internal control structure, inter alia. Since the 2001 budget exercise for the Commission and since 2003 for all European Union institutions, the ‘authorising officer by delegation’ must submit an AAR to his/her institution on the performance of his/her duties, together with financial and management information.

Appropriations

Budget funding. The budget forecasts both commitments and payments (cash or bank transfers to the beneficiaries). Appropriations for commitments and payments often differ (differentiated appropriations) because multi annual programmes and projects are usually fully committed in the year they are decided and are paid over the years as the implementation of the programme and project progresses. Non-differentiated appropriations apply to administrative expenditure, for agricultural market support and direct payments and commitment appropriations equal payment appropriations.

Assigned revenue

Dedicated revenue received to finance specific items of expenditure. The main source of external assigned revenue is financial contributions from third countries to programmes financed by the Union. The main source of internal assigned revenue is revenue from third parties in respect of goods, services or work supplied at their request; revenue arising from the repayment of amounts wrongly paid and revenue from the sale of publications and films.

Available for sale financial assets

All financial assets (except derivatives) that are according to International Public Sector Accounting Standards measured at fair value and for which the changes in fair value are to be recognised in a reserve in net assets until derecognition (or impairment).

Budget line

As far as the budget structure is concerned, revenue and expenditure are shown in the budget in accordance with a binding nomenclature which reflects the nature and purpose of each item, as imposed by the budgetary authority. The individual headings (title, chapter, article or line) provide a formal description of the nomenclature.

Cancellation of appropriations

Unused appropriations that may no longer be used.

Carryover of appropriations

Exception to the principle of annuality in so far as appropriations that could not be used in a given budget year may, under strict conditions, be exceptionally carried over for use during the following year.

Commitment

Legal pledge to provide finance subject to certain conditions. The EU commits itself to reimbursing its share of the costs of an EU funded project. Today’s commitments are tomorrow’s payments. Today’s payments are yesterday’s commitments.

Commitment appropriation

Commitment appropriations cover the total cost of legal obligations (contracts, grant agreements/decisions) that could be signed in the current financial year.

Current service cost

The increase in scheme liabilities arising from service in the current financial year.

Decommitment

An act whereby a previous commitment (or part of it) is cancelled.

Defined benefit scheme

A pension or other retirement benefit scheme where the scheme rules define the benefits independently of the contributions payable, and the benefits are not directly related to the investments of the scheme. The scheme may be funded or unfunded.

Derivatives

Financial instruments whose value is linked to changes in the value of another financial instrument, an indicator or a commodity. In contrast to the holder of a primary financial instrument (e.g. a government bond), who has an unqualified right to receive cash (or some other economic benefit) in the future, the holder of a derivative has only a qualified right to receive such a benefit. An example of a derivative is currency forward contract.

Direct management

Mode of budget implementation. Under direct management the budget is implemented directly by Commission services, Executive Agencies or Trust Funds.

Discount rate

The rate used to adjust for the time value of money. Discounting is a technique used to compare costs and benefits that occur in different time periods.

Effective interest rate

The rate that discounts estimated future cash receipts or payments over the expected life of the financial asset or financial liability to the net carrying amount of the asset or liability.

Financial assets or liabilities at fair value through surplus or deficit

All financial assets or liabilities that are according to International Public Sector Accounting Standards measured at fair value and for which the changes in fair value are to be recognised in surplus or deficit of the period (i.e. derivatives).

Financial correction

The purpose of financial corrections is to protect the EU budget from the burden of erroneous or irregular expenditure. For expenditure under shared management, the task of recovering incorrect payments is primarily the responsibility of the Member State.
A ‘confirmed’ financial correction has been accepted by the Member State concerned. A ‘decided’ financial correction has been adopted by a Commission decision and is always a net correction, where the Member State is required to reimburse irregular funds to the EU budget, thus leading to a definitive reduction of the allocated envelope to the Member State concerned. Confirmed and decided financial corrections are reported in this publication as one category.
An ‘implemented’ financial correction has corrected the observed irregularity.

Indirect management

Mode of budget implementation. Under indirect management the Commission confers tasks of budget implementation to bodies of EU law or national law.

Interruptions and suspensions

If the Commission finds, based on its own work or the information reported by audit authorities, that a Member State has failed to remedy serious shortcomings in the management and control systems and/or to correct irregular expenditure which had been declared and certified, it may interrupt or suspend payments.

Irregularity

An irregularity is an act which does not comply with EU rules and which has a potentially negative impact on EU financial interests, but which may be the result of genuine errors committed either by beneficiaries claiming funds or by the authorities responsible for making payments. If an irregularity is committed deliberately, it constitutes fraud.

Lapsing appropriations

Unused appropriations to be cancelled at the end of the financial year. Lapsing means the cancellation of all or part of the authorisation to make expenditures and/or incur liabilities which is represented by an appropriation. Only for Joint Undertakings, as specified in their Financial Rules, any unused appropriations may be entered in the estimate of revenue and expenditure of up to the following three financial years (the so-called ‘N+3’ rule). Hence, lapsing appropriations for JUs could be reactivated until financial year ‘N+3’.

Own resources

Represent the main funding for the EU institutions and bodies and are defined in the own resources Council Regulation (EU, Euratom) No 609/2014. Own resources comprise GNI-based resources, VAT-based resources and traditional own resources.

Payment appropriations

Payment appropriations cover expenditure due in the current year, arising from legal commitments entered in the current year and/or earlier years.

Pre-financing

A payment intended to provide the beneficiary with a float. It may be split into a number of payments in accordance with the provisions of the underlying contract, decision, agreement or the basic legal act. The float or advance is either used for the purpose for which it was provided during the period defined in the agreement or it is repaid.

Preventive measure

Preventive measures, which are at the Commission’s disposal to protect the EU budget when it is aware of potential deficiencies, include suspensions and interruptions of payments from the EU budget to the operational programme.

Reste à Liquider (RAL)

Represents the amount where a budgetary commitment has been made but the subsequent payment is not yet done. They represent payment obligations for the EU for future years and stem directly from the existence of multi annual programmes and the dissociation between commitment and payment appropriations.

Shared management

Mode of budget implementation. Under shared management budget implementation tasks are delegated to Member States. About 80 % of the EU expenditure falls under this implementation mode.

Traditional own resources

These represent revenue for the EU and are part of the ‘own resources’ which fund the activities of the EU. Traditional own resources are defined in the own resource Council Regulation (EU, Euratom) No 609/2014 and comprise customs duties and sugar levies.

Transfers (between budget lines)

Transfers between budget lines imply the relocation of appropriations from one budget line to another, in the course of the financial year, and thereby they constitute an exception to the budgetary principle of specification. They are, however, expressly authorised by the Treaty on the Functioning of the European Union under the conditions laid down in the Financial Regulation (FR). The FR identifies different types of transfers depending on whether they are between or within budget titles, chapters, articles or headings and require different levels of authorisation.
LIST OF ABBREVIATIONS






AAR


Annual Activity Report




ABB


Activity Based Budgeting




ABM


Activity Based Management




ACER


Agency for the Cooperation of Energy Regulators




AMIF


Asylum, Migration and Integration Fund




AOD


Authorising Officers by Delegation




ARTEMIS


Advanced Research & Technology for EMbedded Intelligent Systems




ATM


Air Traffic Management




BBI


Bio-Based Industries Joint Undertaking




BEREC


Body of European Regulators for Electronic Communications




BIC


Bio-based Industries Consortium




BIS


Bank for International Settlements




BOP


Balance of Payments




BUFI Fund


Budget Fines Fund




CAP


Common Agricultural Policy




CCS LGF


Cultural and Creative Sector Guarantee Facility




Cedefop


European Centre for the Development of Vocational Training




CEF


Connecting Europe Facility




CEF DI


Connecting Europe Facility Debt Instrument




CEPOL


European Union Agency for Law Enforcement Training




CF


Cohesion Fund




Chafea


Consumers, Health, Agriculture and Food Executive Agency




CIP


Competitiveness and Innovation Framework Programme




COM


Commission




COSME


Competitiveness of Enterprises and Small and Medium-sized Enterprises




COSO


Committee of Sponsoring Organizations of the Treadway Commission




CPR


Common Provisions Regulation




CPVO


Community Plant Variety Office




D&WM


Decommissioning and Waste Management




EACEA


Education, Audiovisual and Culture Executive Agency




EAFRD


European Agricultural Fund for Rural Development




EAGF


European Agricultural Guarantee Fund




EAGGF


European Agricultural Guidance and Guarantee Fund




EASA


European Aviation Safety Agency




EaSI


Employment and Social Innovation




EASME


Executive Agency for Small and Medium-sized Enterprises




EASO


European Asylum Support Office




EBA


European Banking Authority




EBRD


European Bank for Reconstruction and Development




ECA


European Court of Auditors




ECB


European Central Bank




ECDC


European Centre for Disease Prevention and Control




ECHA


European Chemicals Agency




ECOFIN


Economic and Financial Affairs Council




ECSC


European Coal and Steel Community




ECSEL


Electronic Components and Systems for European Leadership Joint Undertaking




EDF


European Development Fund




EDIF


Guarantee Facility under the Western Balkan




EEA


European Economic Area




EEA


European Environment Agency




EEAS


European External Action Service




EFCA


European Fisheries Control Agency




EFF


European Fisheries Fund




EFSA


European Food Safety Authority




EFSD


European Fund for Sustainable Development




EFSE


European Fund for Southeast Europe




EFSF


European Financial Stability Facility




EFSI


European Fund for Strategic Investments




EFSM


European Financial Stabilisation Mechanism




EFTA


European Free Trade Association




EGNOS


European Geostationary Navigation Overlay System




EIB


European Investment Bank




EIF


European Investment Fund




EIGE


European Institute for Gender Equality




EIOPA


European Insurance and Occupational Pensions Authority




EIT


European Institute of Innovation and Technology




ElectriFI


Electrification Financing Initiative




EMA


European Medicines Agency




EMCDDA


European Monitoring Centre for Drugs and Drug Addiction




EMFF


European Maritime and Fisheries Fund




EMSA


European Maritime Safety Agency




EMU


Economic and Monetary Union




ENEF


Enterprise Expansion Fund




ENIAC


European Nanoelectronics Initiative Advisory Council




ENIF


Enterprise Innovation Fund




ENISA


European Union Agency for Network and Information Security




ENPI


European Neighbourhood and Partnership Instrument




EP


European Parliament




ERCEA


European Research Council Executive Agency




ERDF


European Regional Development Fund




ESA


European Space Agency




ESF


European Social Fund




ESIF


European Structural and Investment Funds




ESM


European Stability Mechanism




ESMA


European Securities and Markets Authority




ETF


European Technology Start up Facility 1998




ETF


European Training Foundation




EU


European Union




EUIPO


European Union Intellectual Property Office




eu-LISA


European Agency for the Operational Management of Large-Scale IT Systems in the Area of Freedom, Security and Justice




EUMETSAT


European Organisation for the Exploitation of Meteorological Satellites




EU-OSHA


European Agency for Safety and Health at Work




Euratom


European Atomic Energy Community




Eurofound


European Foundation for the Improvement of Living and Working Conditions




Eurojust


European Union’s Judicial Cooperation Unit




Europol


European Police Office




F4E


Fusion for Energy




FCH


Fuel Cells and Hydrogen Joint Undertaking




FIFG


Financial Instrument for Fisheries Guidance




FIFO


First-in, First-out




FP7


7th Research Framework Programme for Research and Technological Development




FR


Financial Regulation




FRA


European Union Agency for Fundamental Rights




Frontex


European Border and Coast Guard Agency




FSDA


Financial Statement Discussion and Analysis




GDP


Gross Domestic Product




GMES


Global Monitoring for Environment and Security




GNI


Gross National Income




GNSS


Global Navigation Satellite Systems




H2020


Horizon 2020




ICSLT


International Civil Servants Life Table




IFRP


Integrated Financial Reporting Package




IIW


Infrastructure and Innovation Window




IMF


International Monetary Fund




IMI


Innovative Medicines Initiative Joint Undertaking




INEA


Innovation and Networks Executive Agency




IPA II


Instrument for Pre-accession Assistance




IPSAS


International Public Sector Accounting Standards




ISF


Internal Security Fund




IT


Information Technology




ITER


International Thermonuclear Experimental Reactor




JAP


Joint Action Plan




JRC


Joint Research Centre




JU


Joint Undertaking




LGTT


Loan Guarantee Instrument for TEN-T projects




MAP


Multi Annual Programme - Medium Enterprise Financial Inclusion Programme




MEP


Member of the European Parliament




MFA


Macro Financial Assistance




MFF


Multiannual Financial Framework




MSME


Micro, Small and Medium Enterprise




NEETs


Not in Education, Employment or Training




ORD


Own Resources Decision




PBI


Project Bond Initiative




PF4EE


Private Finance for Energy Efficiency Instrument




PGF


Participants Guarantee Fund




PMF


European Progress Microfinance Facility




PPP


Public-Private Partnership




PSEO


Pension Scheme of European Officials




R&I


Research and Innovation




RAL


‘Reste à Liquider’ (Outstanding Commitments)




REA


Research Executive Agency




RSFF


Risk Sharing Finance Facility




RTD


Research, Technological Development and Demonstration




S&P


Standard & Poor’s Financial Services LLC




SANAD


MENA Fund for Micro-, Small and Medium Enterprises




SAPARD


Special Accession Programme for Agriculture and Rural Development




SEMED


Southern and Eastern Mediterranean Micro, Small and Middle sized Enterprises Financial Inclusion Programme




SESAR


Single European Sky ATM Research Joint Undertaking




SIUGI


SME Initiative Uncapped Guarantee Instrument




SME


Small and Medium-sized Enterprise(s)




SMEW


SME Window (Small and Medium-sized Enterprises Window)




TFEU


Treaty on the Functioning of the European Union




TOR


Traditional Own Resources




TRDI


Temporary Rural Development Instrument




VAT


Value Added Tax




YEI


Youth Employment Initiative






(1)  Under the principle of subsidiarity, the Union shall act only if and in so far as the objectives of the proposed action cannot be sufficiently achieved by the Member States but can rather, by reason of the scale or effects, be better achieved at Union level. Under the principle of proportionality, the content and form of Union action shall not exceed what is necessary to achieve the objectives of the Treaties. See Article 5 of the TFEU.

(2)  See Communication from the Commission, Europe 2020, A strategy for smart, sustainable and inclusive growth, COM(2010) 2020, 3 March 2010.

(3)  Commission communication ‘Next steps for a sustainable European future European action for sustainability’, SWD(2016) 390 final, 22 November 2016.

(4)  Interinstitutional Agreement of 2 December 2013 between the European Parliament, the Council and the Commission on budgetary discipline, on cooperation in budgetary matters and on sound financial management (2013/C 373/01).

(5)  Regulation (EU, Euratom) 2018/1046 of the European Parliament and of the Council of 18 July 2018 on the financial rules applicable to the general budget of the Union, amending Regulations (EU) No 1296/2013, (EU) No 1301/2013, (EU) No 1303/2013, (EU) No 1304/2013, (EU) No 1309/2013, (EU) No 1316/2013, (EU) No 223/2014, (EU) No 283/2014, and Decision No 541/2014/EU and repealing Regulation (EU, Euratom) No 966/2012 (OJ L 193, 30.7.2018, p. 1).

(6)  Treaty on the Functioning of the European Union, Article 317.

(7)  For more details see Communication to the Commission from President Juncker and First Vice-President Timmermans: Governance in the European Commission, C(2017) 6915 final of 11 October 2017, URL: https://ec.europa.eu/info/sites/info/files/c_2017_6915_final_en.pdf.

(8)  E.g. internal control standards are based on the COSO 2013 Internal Control principles.

(9)  https://ec.europa.eu/info/publications/governance-in-the-commission_en. For more details see Communication to the Commission C(2018)7704 ‘Streamlining and strengthening corporate governance within the European Commission’, https://ec.europa.eu/info/sites/info/files/file_import/streamlining-strengthening-corporate-governa-nce-european-commission_en.pdf.

(10)  Special Report N° 27/2016 on ‘Governance at the European Commission – best practice?’.

(11)  As a result, the term ‘European Commission’ is used to denote both the institution – the College - formed by the Members of the Commission, and its administration managed by the Directors-General of its departments (and heads of other administrative structures such as services, offices and executive agencies).

(12)  European Council Decision (EU) 2019/476 taken in agreement with the United Kingdom of 22 March 2019 extending the period under Article 50(3)TEU (OJ L 80I, 22.3.2019, p. 1).

(13)  European Council Decision (EU) 2019/584 taken in agreement with the United Kingdom of 11 April 2019 extending the period under Article 50(3) TEU (OJ L 101, 11.4.2019, p. 1)

(14)  It should be noted that due to the rounding of figures into millions of euros, some financial data in the tables below may appear not to add up.

(*1)  The European Parliament adopted a budget on 12 December 2018 which provides for the payment of the Union’s short-term liabilities from own resources to be collected by, or called up from, the Member States in 2019. Additionally, under Article 83 of the Staff Regulations (Council Regulation 259/68 of 29 February 1968 as amended), the Member States shall jointly guarantee the liability for pensions.


(15)  OJ L 193, 30.7.2018, p. 1.

(16)  The PSEO is a notional (virtual) fund with defined benefits, in which staff’s contributions serve to finance their future pensions. Although there is no actual investment fund, the amount that would have been collected by such a fund is considered to have been invested in the Member States’ long-term bonds and is reflected in the pension liability that is registered in the annual accounts of the European Union. Member States jointly guarantee the payment of the benefits pursuant to Article 83 of the Staff Regulations and Article 4(3) of the Treaty on European Union (see COM(2018) 829 for a detailed description of the scheme).

(17)  OJ L 345, 27.12.2017, p. 34.

(18)  OJ L 249, 27.9.2017, p. 1.

(19)  Regulation (EU) No 1316/2013 of the European Parliament and of the Council of 11 December 2013 establishing the Connecting Europe Facility, amending Regulation (EU) No 913/2010 and repealing Regulations (EC) No 680/2007 and (EC) No 67/2010 (OJ L 348, 20.12.2013, p. 129).

(20)  OJ L 168, 7.6.2014, p. 39.

(21)  OJ L 168, 7.6.2014, p. 105.

(*2)  ‘Not-assigned to MFF heading’ includes consolidated entities’ budget execution and consolidation eliminations, off-budget operations and unallocated programmes with individually immaterial amounts.


(22)  Decision (EU) 2018/412 of the European Parliament and of the Council of 14 March 2018 amending Decision No 466/2014/EU granting an EU guarantee to the European Investment Bank against losses under financing operations supporting investment projects outside the Union (OJ L 76, 19.3.2018, p. 30).

(23)  OJ L 347, 20.12.3013, p. 320.

(24)  OJ L 122, 24.4.2014, p. 44.

(25)  OJ L 349, 21.12.2013, p. 100.

(26)  OJ L 347, 20.12.2013, p. 1.

(27)  OJ L 70, 12.3.2019, p. 1.

(28)  OJ L 291, 16.11.2018, p. 3.

(29)  OJ L 132, 21.5.2016, p. 85.

(*3)  Excluding back-to-back loans for financial assistance.


(*4)  Available for sale financial assets (excluding equity instruments and Unitary Fund).


(*5)  Financial assets at fair value through surplus or deficit.


(30)  Council Regulation (EC) No 431/2009 of 18 May 2009 amending Regulation (EC) No 332/2002 establishing a facility providing medium-term financial assistance for Member States’ balances of payments (OJ L 128, 27.5.2009, p. 1).

(31)  Council Regulation (EU) No 407/2010 of 11 May 2010 establishing a European financial stabilisation mechanism (OJ L 118, 12.5.2010, p. 1).

(*6)  With correction coefficient (‘CC’) applied.


(*7)  Paid for the first 3 years following departure.


(32)  It should be noted that due to the rounding of figures into millions of euros, some financial data in the tables below may appear not to add up.


(*8)  The assets presented in this table include several items of the financial statements (Available-for-sale of EUR 4 387 million (of which EUR 1 294 million are equity instruments); Cash and cash equivalents of EUR 1 615 million; Loans of EUR 64 million and other items in the amount of EUR 49 million).


(*9)  The liabilities presented in this table include several items of the financial statements (Provisions of EUR 1 337 million; Payables of EUR 69 million and other items in the amount of EUR 22 million).


(*10)  For certain guarantees the risk taken by the EU is fully covered by the provisions made.


(*11)  Without re-financing transactions.


(*12)  Excluding precautionary assistance.


(33)  See for more information: European Commission ‘European Economic Forecast Winter 2019’, URL: https://ec.europa.eu/info/publications/european-economic-forecast-winter-2019_en

(34)  It should be noted that due to the rounding of figures into millions of euros, some financial data in the tables below may appear not to add up.

(35)  OJ L 168, 7.6.2014, p. 29.