The ECA’s statement of assurance to the European Parliament and the Council – independent auditor’s report
Date: 2025-07-10
Institutions: European Court of Auditors
Subjects: EU budget, activity report, audit, auditing, budgetary assessment, budgetary control, closing of accounts, financial year








C_202505407EN.000101.fmx.xml












Official Journal of the European Union


EN
C series













C/2025/5407


13.10.2025






The ECA’s statement of assurance to the European Parliament and the Council – independent auditor’s report
(C/2025/5407)


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 2024, approved by the Commission on 25 June 2025;










(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 2024 present fairly, in all material respects, the EU’s financial position as at 31 December 2024, 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 2024 is legal and regular in all material respects.










Expenditure















IV.


For 2024, we continue to provide two separate opinions on the legality and regularity of expenditure. This reflects the fact that the Recovery and Resilience Facility (RRF) is a temporary instrument delivered and financed in a way that is fundamentally different to budget spending under the multiannual financial framework (MFF).





Adverse opinion on the legality and regularity of budget expenditure









V.


In our opinion, owing to the significance of the matter described under ‘Basis for adverse opinion on the legality and regularity of budget expenditure’, the budget expenditure accepted in the accounts for the year ended 31 December 2024 is materially affected by error.





Qualified opinion on the legality and regularity of RRF expenditure









VI.


In our opinion, except for the effects and the possible effects of the matters described under ‘Basis for qualified opinion on the legality and regularity of RRF expenditure’, the RRF expenditure accepted in the accounts for the year ended 31 December 2024 is legal and regular in all material respects.





Basis for opinions









VII.


We have conducted our audit in accordance with the International Federation of Accountants (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. In that section, we also provide more information on the basis for our opinion on revenue (see paragraph 
XXXV
) and RRF expenditure (see paragraph 
XXXVII
). 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 opinions.





Basis for adverse opinion on the legality and regularity of budget expenditure









VIII.


Our overall estimated level of error for budget expenditure accepted in the accounts for the year ended 31 December 2024 is 3,6 %. A substantial proportion of this expenditure is materially affected by error. This concerns expenditure subject to complex rules, mainly reimbursement-based, in which the estimated level of error is 5,2 %. Such expenditure amounted to EUR 115,7 billion in 2024, representing 68,9 % of our audit population (3). The effects of the errors we found are therefore both material and pervasive to the year’s accepted expenditure.





Basis for qualified opinion on the legality and regularity of RRF expenditure









IX.


We found the following quantitative and qualitative elements:






—


six out of the 28 RRF payments to member states (and related clearings of pre-financing) were affected by quantitative findings. Five of these payments were affected by material error. We note that there is an increasing trend in the overall financial impact of quantitative findings;










—


weaknesses in the ex ante assessment carried out by the Commission;










—


cases of vaguely defined milestones/targets that contributed to a more discretionary assessment of their satisfactory fulfilment;










—


persistent weaknesses in the member states’ control systems; and










—


problems with the reliability of information that member states included in their management declaration.
















X.


Furthermore, we found serious weaknesses in the appointment of judges connected with the reform to strengthen the independence and impartiality of courts in Poland by reforming the disciplinary regime for judges. There is an ongoing case at the Court of Justice of the European Union regarding a request for preliminary ruling directly related to this matter. Pending a final ruling by the CJEU on this matter, we do not conclude on the satisfactory fulfilment of the two related milestones at this stage. The satisfactory fulfilment of these milestones was a precondition for any RRF payment to Poland.












XI.


Based on these elements, we consider that the overall effects of our findings are material, but not pervasive to the year’s accepted RRF expenditure.









Key audit matters



We assessed the liability for pension and other employee benefits















XII.


The EU balance sheet includes a liability for pension and other employee benefits amounting to EUR 93,1 billion at the end of 2024 (2023: EUR 90,8 billion).












XIII.


Most of the liability for pension and other employee benefits relates to the Pension Scheme of Officials and Other Servants of the European Union, amounting to EUR 84,8 billion (2023: EUR 82,7 billion). 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.












XIV.


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.












XV.


In 2024, the pension liability remained stable, with the slight increase being attributed to the expected progression of service and interest cost. Additionally, the discount rate increased by 0,3 %.












XVI.


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, which amounted to EUR 6,9 billion at the end of 2024 (2023: EUR 6,3 billion). This liability relates to EU staff members’ healthcare costs payable during post-activity periods (net of their contributions).












XVII.


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 external, independent actuarial experts. 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.












XVIII.


In this context, we also examined the outstanding UK liability relating to the Pension Scheme of the European Officials and the Joint Sickness Insurance Scheme, amounting to EUR 9,9 billion (2023: EUR 10,2 billion). We verified the accuracy of the data used for the calculation and that only the relevant share of the overall liability was apportioned to the UK.












XIX.


We conclude that the estimate of the overall liability for pension and other employee benefits, as well as the UK share of that liability, are presented fairly in the consolidated annual accounts.










We assessed significant year-end estimates presented in the accounts















XX.


At the end of 2024, the estimated value of incurred eligible expenditure due to beneficiaries but not yet claimed was EUR 160,7 billion (2023: EUR 155,2 billion). These amounts were recorded as accrued expenses (4).












XXI.


The increase in the estimate across all programmes is mainly driven by the fact that the previous programming period is coming to an end and that the uptake of 2021-2027 MFF funds has been slower than anticipated. Thus, the value of actual claims submitted was lower than expected and a greater proportion had to be estimated at year-end. Accruals recorded in relation to the RRF, which are based on a forecast of future payments, amounted EUR 7,9 billion (2023: EUR 7,4 billion).












XXII.


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 expenditure was incurred. 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.












XXIII.


We conclude that the estimate of the overall amount of accrued charges and other advances paid to member states is presented fairly in the consolidated annual accounts.










We assessed the impact on the accounts of Russia’s war of aggression against Ukraine















XXIV.


As the EU provides assistance to Ukraine in the form of loans and grants, we assessed the Commission’s calculations concerning the EU’s related financial exposure, as well as their underlying basis, to ensure that the actual and potential consequences were reflected appropriately in the EU accounts. We, as well as an independent external expert, assessed the Commission’s calculations to ensure that all relevant information was considered.












XXV.


We conclude that the treatment of the impact of Russia’s war of aggression against Ukraine on the consolidated accounts is presented fairly in the consolidated annual accounts.










We assessed the impact of NGEU on the accounts















XXVI.


With NextGenerationEU (NGEU), the EU mobilised substantial resources to mitigate the COVID-19 pandemic’s socio-economic impact. To fund NGEU, the European Commission raises debt in the capital markets. These funds are being made available to the member states in the form of non-repayable grants or loans up to a previously agreed allocation. These activities have a significant effect on the financial statements. The most significant part of NGEU is the Recovery and Resilience Facility (RRF), through which EUR 197,5 billion of grants and EUR 108,7 billion of loans had been disbursed by the end of 2024.












XXVII.


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









Other matters



Information included in the ‘Financial highlights of the year’
                        















XXVIII.


The Commission 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.










Treatment of proceeds from borrowing to finance NGEU















XXIX.


We note that amounts borrowed to finance NGEU non-repayable financial support are presented differently in the budget and in the consolidated financial statements. The amounts borrowed to finance non-repayable financial support to member states in the context of NGEU, providing 29 % of EU revenue in 2024, are treated as external assigned revenue, which is additional to the voted budget, in line with the RRF regulation. The statement of financial performance does not include these amounts as revenue, but it does include the expenses related to NGEU non-repayable financial support, leading to a negative impact on the economic result for the year. Negative economic results increase the deficit in net assets as reflected in the EU’s balance sheet and therefore must be funded by future budgets.









Responsibilities of management














XXX.


In accordance with Articles 310 to 325 of the TFEU and with the Financial Regulation, the Commission 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 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).












XXXI.


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.












XXXII.


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












XXXIII.


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














XXXIV.


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.












XXXV.


For revenue, our examination of the own resources based on gross national income, value added tax and non-recycled plastic packaging waste takes as its starting point the statistics and data 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. Customs duties are at risk of either not being declared or being declared incorrectly to the national customs authorities by importers. The actual import duties collected will therefore fall short of the amount that should theoretically be collected. This difference is known as the ‘customs gap’. These evaded amounts are not captured in member states’ traditional own resources accounting systems and do not fall within the scope of our audit opinion on revenue.












XXXVI.


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.












XXXVII.


For RRF expenditure, unlike other budget expenditure, the condition for payment is the satisfactory fulfilment of predefined milestones or targets. Further requirements are that targets or milestones that have previously been satisfactorily fulfilled should not have been reversed, and that there is no breach of the double-funding principle. The eligibility conditions laid down in the Regulation include compliance with the eligibility period, the ‘Do No Significant Harm’ (DNSH) principle, and non-substitution of recurring national budgetary expenditure. Consequently, our audit focuses on whether these payment and eligibility conditions were met. As compliance of expenditure incurred by final recipients with EU and national rules is not a condition for RRF payments, our audit opinion does not cover the regularity of expenditure incurred by final recipients. The RRF Regulation does not stipulate further criteria on how to interpret the word ‘satisfactory’, and, therefore, leaves the Commission with broad discretion when assessing the satisfactory fulfilment of milestones and targets. The assessment of qualitative achievements requires several judgements to be made, leading to different possible interpretations. This risk is particularly present when milestones or targets are vaguely designed.












XXXVIII.


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.
















XXXIX.


We communicate with the Commission and other audited entities regarding, among other matters, the planned scope and timing of the audit and significant audit observations, including any significant deficiencies in internal control.












XL.


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.











                  10 July 2025
               

Tony MURPHY
               

President









European Court of Auditors




12, rue Alcide De Gasperi – L-1615 Luxembourg






(1)  
            Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council of 23 September 2024 on the financial rules applicable to the general budget of the Union (OJ L, 2024/2509, 26.9.2024, ELI: http://data.europa.eu/eli/reg/2024/2509/oj), Article 249.

(2)  
            Ibid., Article 250.

(3)  We provide further information in our 2024 annual report, paragraphs 1.15 and 1.18.

(4)  These comprise accrued charges of EUR 66,8 billion on the liabilities side of the balance sheet and, on the assets side, EUR 93,9 billion reducing the value of pre-financing.


ELI: http://data.europa.eu/eli/C/2025/5407/oj
ISSN 1977-091X (electronic edition)