The ECA’s Statement of Assurance provided to the European Parliament and the Council – independent auditor’s report
Date: 2021-07-15
Institutions: European Commission
Subjects: EU budget, activity report, audit, auditing, budgetary assessment, budgetary control, closing of accounts, financial year








C_2021436EN.01020701.xml










28.10.2021   


EN


Official Journal of the European Union


C 436/207






The ECA’s Statement of Assurance provided to the European Parliament and the Council – independent auditor’s report
(2021/C 436/02)


Opinion















I.


We have audited:






(a)


the consolidated accounts of the European Union, which comprise the consolidated financial statements (1) and the budgetary implementation reports (2) for the financial year ended 31 December 2020, approved by the Commission on 30 June 2021;










(b)


the legality and regularity of the underlying transactions, as required by Article 287 of the Treaty on the Functioning of the European Union (TFEU).














Reliability of the accounts



Opinion on the reliability of the accounts














II.


In our opinion, the consolidated accounts of the European Union (EU) for the year ended 31 December 2020 present fairly, in all material respects, the EU’s financial position as at 31 December 2020, the results of its operations, its cash flows and the changes in its net assets for the year then ended, in accordance with the Financial Regulation and with accounting rules based on internationally accepted accounting standards for the public sector.










Legality and regularity of the transactions underlying the accounts



Revenue







Opinion on the legality and regularity of revenue









III.


In our opinion, the revenue underlying the accounts for the year ended 31 December 2020 is legal and regular in all material respects.









Expenditure







Adverse opinion on the legality and regularity of expenditure









IV.


In our opinion, owing to the significance of the matter described under ‘Basis for adverse opinion on the legality and regularity of expenditure’, the expenditure accepted in the accounts for the year ended 31 December 2020 is materially affected by error.





Basis for opinion









V.


We have conducted our audit in accordance with the IFAC International Standards on Auditing (ISAs) and Codes of Ethics and the INTOSAI International Standards of Supreme Audit Institutions (ISSAIs). Our responsibilities under these standards and codes are described in more detail in the ‘Auditor’s responsibilities’ section of our report. We have also met independence requirements and fulfilled our ethical obligations under the International Ethics Standards Board for Accountants Code of Ethics for Professional Accountants. We believe that the audit evidence we have obtained is sufficient and appropriate to provide a basis for our opinion.





Basis for adverse opinion on the legality and regularity of expenditure









VI.


Our overall estimated level of error for expenditure accepted in the accounts for the year ended 31 December 2020 is 2,7 %. A substantial proportion of this expenditure — more than half, is materially affected by error. This concerns mainly reimbursement-based expenditure, in which the estimated level of error is 4,0 %. Due largely to a further rise in ‘Cohesion’ spending, such expenditure increased to 87,2 billion euros in 2020, representing 59,0 % of our audit population (3). The effects of the errors we found are therefore both material and pervasive to the accepted expenditure of the year.










Key audit matters



We assessed the liability for pension and other employee benefits














VII.


The EU balance sheet includes a liability for pension and other employee benefits amounting to 116,0 billion euros at the end of 2020, representing more than one third of the total 2020 liabilities of 313,5 billion euros.












VIII.


Most of the liability for pension and other employee benefits relates to the Pension Scheme of Officials and Other Servants of the European Union (PSEO), amounting to 100,7 billion euros. The liability recorded in the accounts is an estimate of the present value of expected future payments the EU will have to make to settle its pension obligations.












IX.


The benefits paid under the pension scheme are charged to the EU budget. While the EU has not created a dedicated pension fund to cover the cost of future pension obligations, Member States jointly guarantee the payment of the benefits, and officials contribute one third of the cost of financing the scheme. Eurostat calculates this liability annually on behalf of the Commission’s accounting officer, using parameters such as the age profile and life expectancy of EU officials and assumptions about future economic conditions. These parameters and assumptions are also assessed by the Commission’s actuarial advisors.












X.


The increase in the pension liability in 2020 is mainly due to the decrease in the nominal discount rate, which is affected by a reduction in global interest rates (4). This is the main contributor to a 98 % increase in the pension liability between 2014 and 2020, from 50,9 billion euros to 100,7 billion euros (5).












XI.


The second largest part of the liability for pension and other employee benefits is the EU’s estimated liability towards the Joint Sickness Insurance Scheme (JSIS), which amounted to 12,9 billion euros at the end of 2020. This liability relates to EU staff members’ healthcare costs payable during post-activity periods (net of their contributions).












XII.


As part of our audit, we assess the actuarial assumptions made for these schemes and the resulting valuation. We base our evaluation on work carried out by an external, independent actuarial expert. We check the basic data underlying the calculations, the actuarial parameters and the calculation of the liability. We also examine the presentation of the liabilities in the consolidated balance sheet and the notes to the consolidated financial statements.












XIII.


We conclude that the estimate of the overall liability for pension and other employee benefits stated in the consolidated balance sheet is fair and reliable. Finally, we will continue to assess the calculation of this significant liability, including the reliability of the underlying data, thereby contributing to the Commission’s continued monitoring thereof.









We assessed significant year-end estimates presented in the accounts














XIV.


At the end of 2020, the estimated value of eligible expenses incurred by beneficiaries but not yet reported was 107,8 billion euros (end of 2019: 105,7 billion euros). These amounts were recorded as accrued expenses (6).












XV.


At the end of 2020, the estimated amount unused by the financial instruments under shared management and aid schemes recognised in the accounts was 7,2 billion euros (end of 2019: 6,9 billion euros), shown in the balance sheet as ‘Other advances to Member States’.












XVI.


In order to assess these year-end estimates, we examined the system the Commission had set up for the cut-off calculations to ensure its correctness and completeness in the directorates-general where most payments were made. During our audit work on the sample of invoices and pre-financing payments, we examined the relevant cut-off calculations in order to address the risk of accruals being misstated. We sought additional clarification from the Commission’s accounting services on the general methodology for establishing these estimates.












XVII.


We conclude that the estimate of the overall amount of accrued charges and other advances to Member States is presented fairly in the consolidated balance sheet.









We reviewed the asset and corresponding revenue amounts (from non-exchange transactions) generated by the UK’s withdrawal process














XVIII


. On 1 February 2020, the United Kingdom (UK) ceased to be an EU Member State. Following the conclusion of the agreement on the withdrawal of the United Kingdom of Great Britain and Northern Ireland from the European Union and the European Atomic Energy Community (the ‘Withdrawal Agreement’) between the two parties, the UK committed to honour all financial obligations under previous multiannual financial frameworks arising from its EU membership. During the transition period, which ended on 31 December 2020, the UK continued to contribute to and benefit from the EU budget, as if it were a Member State.












XIX.


Following the end of transition period further mutual obligations on the part of the EU and the UK give rise to certain liabilities and receivables for the EU. These obligations must be reflected in the EU’s annual accounts. The Commission estimated that, at the balance sheet date, the UK owed the EU 49,6 billion euros while the EU owed the UK 2,1 billion euros. Therefore, at the balance sheet date, the EU accounts showed a net receivable due from the UK of 47,5 billion euros.












XX.


As part of our normal audit procedures, we discussed with the Commission the timing, accuracy and completeness of the asset and corresponding revenue amounts recognised. We recalculated the amounts concerned, reconciled them with the underlying records and checked the appropriateness of any assumptions used.












XXI.


We conclude that the estimates of the total assets and revenue recognised in relation to the UK’s withdrawal process are presented fairly in the consolidated annual accounts. We will keep these amounts under review going forward.









We assessed the impact of COVID-19 related measures on the accounts














XXII.


In reaction to the COVID-19 pandemic the Commission mobilised substantial resources to strengthen Member States’ public health sectors and mitigate the socio-economic impact of the crisis in the European Union. This included funding urgent medical supplies, introducing more flexibility in the use of financial support from the European Structural and Investment Funds and providing loans on favourable terms to Member States. The financial effects of those initiatives had a significant impact on the financial statements.












XXIII.


As part of our normal audit procedures, we audited the EU’s assets, liabilities, revenue and expenses, including those related to the measures taken by the Commission. We conclude that they are presented fairly in the consolidated annual accounts.










Other matters















XXIV.


Management is responsible for providing ‘other information’. This term encompasses the ‘Financial highlights of the year’, but not the consolidated accounts or our report on these. Our opinion on the consolidated accounts does not cover this other information, and we do not express any form of assurance conclusion on it. Our responsibility in connection with the audit of the consolidated accounts is to read the other information and consider whether it is materially inconsistent with the consolidated accounts or the knowledge we have obtained in the audit or otherwise appears to be materially misstated. If we conclude that the other information is materially misstated, we are required to report this accordingly. We have nothing to report in this regard.









Responsibilities of management














XXV.


In accordance with Articles 310 to 325 of the TFEU and with the Financial Regulation, management is responsible for preparing and presenting the EU’s consolidated accounts on the basis of internationally accepted accounting standards for the public sector, and for the legality and regularity of the underlying transactions. This responsibility includes designing, implementing and maintaining internal control relevant to the preparation and presentation of financial statements that are free from material misstatement, whether due to fraud or error. Management is also responsible for ensuring that the activities, financial transactions and information reflected in the financial statements are in compliance with the authorities (laws, regulations, principles, rules and standards) which govern them. The Commission is ultimately responsible for the legality and regularity of the transactions underlying the EU’s accounts (Article 317 of the TFEU).












XXVI.


When preparing the consolidated accounts, management is responsible for assessing the EU’s ability to continue as a going concern, disclosing any relevant matters and using the going concern basis of accounting unless it either intends to liquidate the entity or cease operations, or has no realistic alternative but to do so.












XXVII.


The Commission is responsible for overseeing the EU’s financial reporting process.












XXVIII.


Under the Financial Regulation (Title XIII), the Commission’s accounting officer must present for audit the consolidated accounts of the EU first as provisional accounts by 31 March of the following year and as final accounts by 31 July. The provisional accounts should already give a true and fair view of the EU’s financial position. It is therefore imperative that all items of the provisional accounts are presented as final calculations, allowing us to perform our task in line with (Title XIII) of the Financial Regulation and by the given deadlines. Any changes between the provisional and final accounts would normally result from our observations only.









Auditor's responsibilities for the audit of the consolidated accounts and underlying transactions














XXIX.


Our objectives are to obtain reasonable assurance as to whether the EU’s consolidated accounts are free from material misstatement and the underlying transactions are legal and regular and on the basis of our audit, to provide the European Parliament and the Council with a statement of assurance as to the reliability of the accounts and the legality and regularity of the underlying transactions. Reasonable assurance is a high level of assurance, but it is not a guarantee that the audit has necessarily detected all instances of material misstatement or non-compliance that may exist. These can arise from fraud or error and are considered material if, individually or in the aggregate, they could reasonably be expected to influence any economic decisions taken on the basis of these consolidated accounts.












XXX.


For revenue, our examination of VAT and GNI-based own resources takes as its starting point the macroeconomic aggregates from which these are calculated, and assesses the Commission's systems for processing these up to the point at which the Member States’ contributions have been received and recorded in the consolidated accounts. For traditional own resources, we examine the customs authorities’ accounts and analyse the flow of duties up until the amounts have been received by the Commission and recorded in the accounts.












XXXI.


For expenditure, we examine payment transactions once expenditure has been incurred, recorded and accepted. This examination covers all categories of payments at the point they are made, except advances. We examine advance payments once the recipient of funds has provided evidence of their proper use and the institution or body has accepted that evidence by clearing the advance payment, which might not happen until a subsequent year.












XXXII.


We exercise professional judgement and maintain professional scepticism throughout the audit. We also:






(a)


Identify and assess the risks of material misstatement of the consolidated accounts and of material non-compliance of the underlying transactions with the requirements of EU law, whether due to fraud or error. We design and perform audit procedures responsive to those risks and obtain audit evidence that is sufficient and appropriate to provide a basis for our opinion. Instances of material misstatement or non-compliance resulting from fraud are more difficult to detect than those resulting from error, as fraud may involve collusion, forgery, intentional omissions, misrepresentations, or the override of internal control. Consequently, there is a greater risk of such instances not being detected.










(b)


Obtain an understanding of internal control relevant to the audit in order to design appropriate audit procedures, but not for the purpose of expressing an opinion on the effectiveness of the internal control.










(c)


Evaluate the appropriateness of the accounting policies used by management and the reasonableness of management’s accounting estimates and related disclosures.










(d)


Conclude as to the appropriateness of management’s use of the going concern basis of accounting and, based on the audit evidence obtained, as to whether material uncertainty exists owing to events or conditions that may cast significant doubt on the entity’s ability to continue as a going concern. If we conclude that such material uncertainty exists, we are required to draw attention in our report to the related disclosures in the consolidated accounts or, if these disclosures are inadequate, to modify our opinion. Our conclusions are based on the audit evidence obtained up to the date of our report. However, future events or conditions may cause the entity to cease to continue as a going concern.










(e)


Evaluate the overall presentation, structure and content of the consolidated accounts, including all disclosures, and assess whether the consolidated accounts fairly represent the underlying transactions and events.










(f)


Obtain sufficient appropriate audit evidence regarding the financial information on the entities covered by the EU’s scope of consolidation to express an opinion on the consolidated accounts and the underlying transactions. We are responsible for directing, supervising and carrying out the audit, and are solely responsible for our audit opinion.
















XXXIII.


We communicate with management regarding, among other matters, the planned scope and timing of the audit and significant audit findings, including findings of any significant deficiencies in internal control.












XXXIV.


Of the matters discussed with the Commission and other audited entities, we determine which were of most significance in the audit of the consolidated accounts and are therefore the key audit matters for the current period. We describe these matters in our report unless law or regulation precludes public disclosure or, as happens extremely rarely, we determine that a matter should not be communicated in our report because the adverse consequences of doing so would reasonably be expected to outweigh any public interest benefits.









15 July 2021

Klaus-Heiner LEHNE

President

European Court of Auditors
12, rue Alcide De Gasperi — L-1615 Luxembourg




(1)  The consolidated financial statements comprise the balance sheet, the statement of financial performance, the cash flow statement, the statement of changes in net assets, and a summary of significant accounting policies and other explanatory notes (including segment reporting).

(2)  The budgetary implementation reports also comprise explanatory notes.

(3)  We provide further information in paragraphs 
1.21-1.26
 of our 2020 annual report.

(4)  2020 EU annual accounts, note 2.9.

(5)  Disclosed in note 2.9 to the EU annual accounts in 2014-2020.

(6)  These comprise accrued charges of 64,4 billion euros on the liabilities side of the balance sheet and, on the assets side, 43,4 billion euros reducing the value of pre-financing.