Greece Fiscal Powers

 

OVERVIEW OF FISCAL DECENTRALISATION 

Greece is a unitary state with a two-tier governmental structure. At the national level, Greece is divided into seven decentralised administrations. At the sub-national level, two levels of self-government exist: 325 municipalities (first level) and 13 regions (second level).  The latter are further divided into 74 regional units. Despite this structure, Greece is a quite centralised state.  

Legal acts governing fiscal decentralisation 

The constitutional revision of 2001 put local governments (both municipalities and regions) in charge of the administration of local affairs and attributed to them administrative and financial independence.
 
Law 3852/2010 on the "New architecture of self-governance and decentralized administration- Programme Kallikratis" is the most recent modification to decentralised governance in Greece.
 
Central own resources for the sub-national governments (KAPs) have been restructured according to Law 3852/2010, aiming for long-term economic sustainability and protection from economic risks for local government finances.
 

Qualifying fiscal decentralisation 

Sub-national authorities have extended competences in functions such as environment, life quality, social protection, education, culture and sports, agriculture, breeding and fishery development, and so on (as set by Law 3852/2010).

 

Sub-national governments' share of responsibility has increased following the implementation of the Kallikratis Law, as they have also accepted exclusive duties. However, the share of expenditures at the local level is relatively low by EU standards at 6% of total government expenditure in 2017.

 

The revenues for the municipal KAPs are:

  • 21.3% of total annual receipts of income tax of physical persons and legal entities;
  • 12% of total annual VAT revenues; and
  • 50% of total annual receipts of the regular property tax (note that  as of 1 January 2014, this changed to 11.3% of total annual receipts of the Single Property Ownership Tax).

 

Two-thirds of the first category revenues and the whole of the other two categories' revenues make up the account covering operational and other general expenditures of the municipalities. The remaining third of the first category revenues covers investment expenditures.  KAPs covers 46%-49% of the total revenues of municipalities, although according to the Medium Term Fiscal Strategy 2013-2016, this share is intended to be reduced.


 
Source: authors’ elaboration on EUROSTAT data. For further details, see methodology
 

LEVEL OF FISCAL DECENTRALISATION 

Article 261 of Law 3852/2010 set out measures for fiscal decentralisation when it comes to taxation. These measures focus on three points:

 

  • A percentage of the annual increase of VAT receipts within the administrative territory of a municipality may be assigned to the municipality concerned, and it will be used exclusively for social solidarity services.
  • By means of a ministerial decision, 20% of property tax revenues may be considered as local municipal revenue depending on the total amount of taxes collected in the administrative area of a municipality. This revenue is allocated towards  activities in urbanisation and related services.
  • The municipalities are given the power to ask for information on wealth elements (properties and income) of physical and legal persons in their administrative territory.

 

In Greece, local governments have a medium degree of revenue autonomy,  around 36%% of revenues in 2017. Nevertheless, revenue autonomy has been increasing since 2000 when it was at 25%. In 2010 the figure was at 30%.The moderate revenue autonomy  results in a slightly higher fiscal imbalance and transfer dependency than the EU average. The transfer dependency in 2017 was 69% compared to the EU average of 48%.

 
Source: authors’ elaboration on EUROSTAT data. For further details, see methodology.
  
The composite ratio, which captures aspects of fiscal decentralisation of both revenue and expenditure, suggests that the sub-national authorities in Greece have a relatively modest degree of fiscal decentralisation (3% in 2017) that is considerably lower than the EU average (13% in 2017).
 

Fiscal rules and borrowing capacity 

Greek local authorities may raise debt from financial institutions in the country or abroad, but only for investment and debt-financing purposes and only under certain constraints:

  • the annual cost of debt financing does not exceed 20% of annual regular revenues;
  • the total debt of the region/municipality leading to the borrowing does not exceed a threshold percentage of its total revenues which is determined by a ministerial decision. The total debt of the region/municipality is defined as the sum of its short- and long-term obligations.

Sub-national governments also have the right to issue bonds, but this has not yet been exercised. Given the limited autonomy of the local governments, their debt levels are limited. Nevertheless, some local authorities have been bailed out by the state.

 

Deficit and debt at sub-national levels 

In 2018, the consolidated gross debt of the local government sector amounted to 0.7% of GDP, slightly lower than the 1% seen in 2013. Local authorities are overall net lenders, at 0.4% of GDP in 2018.  
 
Source: authors’ elaboration on EUROSTAT data. For further details, see methodology
 

EXPENDITURE BY GOVERNMENT LEVEL AND BY POLICY AREA 

In 2017, local government expenditures represent an important part of the total government expenditure in the areas of housing and community amenities (94.26%), environmental protection (42.43% of the total), and recreation, culture and religion (53%). 
 
Source: authors’ elaboration on EUROSTAT data. For further details, see methodology.
 
In 2017, the local expenditures were particularly concentrated in the areas of general public services (26.7% compared to the EU average of 14%), economic affairs (19.2% vs. 12%) and environmental protection (16.7% vs. 5%).  

 

Source: authors’ elaboration on EUROSTAT data. For further details, see methodology.

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Decentralization Index

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