1 General government budget 1
1.1 Expansionary fiscal policy adopted
Revenue growth will be substantially weaker as the bolstering effect of non-recurring tax-related developments come to an end and tax cuts are made. However, contribution rates to the social security funds are likely to rise further in order to fund additional spending on healthcare, long-term care and pensions. On balance, the structural tax and social contribution ratio could therefore remain more or less stable (at around 42 %) up to and including 2027. On the expenditure side, the aforementioned additional social security spending will be compounded by growing expenditure on defence, non-military investment and subsidies (e.g. for grid fees). The structural expenditure ratio was already high in 2024, at 49 %, and could rise further by 2027, to 52 %. The debt ratio could go up to 66 % by end-2027.
1.2 Higher deficits only partially focused on infrastructure and defence
1.3 EU rules: Germany has submitted plan
extends the adjustment period from four to seven years; initially assumes increased growth in potential output and the GDP deflator (relative to the European Commission’s reference trajectories); plans to expand net spending in the first instance and to postpone the necessary consolidation to later years; suspends the safeguards that are intended, amongst other things, to ensure a minimum decline in the debt ratio.
Over the term of the MTP (2025 to 2029), estimated growth in potential GDP and the GDP deflator is implausibly high, at 0.9 % (throughout) and 2½ % (on average) for the MTP . These figures are significantly higher than in the current central government plan and in the assumptions on which the European Commission bases its reference trajectories. A transitional provision in the EU rules allows potential growth to be smoothed out. However, there is no convincing case for using this provision in such a way. Defence spending aside, consolidation is being put on the back burner. Generally, the rules in place envisage consolidation taking place linearly in annual steps. The MTP , by contrast, initially goes so far as to adopt an expansionary stance and shifts the planned consolidation to the back end of the adjustment period. By then, it will already be the responsibility of the next Federal Government to enact this consolidation during budget implementation. If governments continue to postpone taking the steps towards achieving sound government finances, fiscal rules will become meaningless.
The EU fiscal guidelines for Germany explained 1
This deviation for the purpose of defence spending is kept in check in two ways: (1) it is capped at 1.5 % of GDP per year, usually compared with the 2021 spending level; (2) it only applies to defence spending according to the “classification of the functions of government” ( COFOG ) definition in the national accounts. In contrast to the German debt brake, the additionally permitted debt-financed defence spending is thus appropriately defined. 3 The escape clause exempting defence spending is activated from 2025 to 2028. However, it accommodates higher general deficits and expenditure (not just for defence) not only up to 2028, but also beyond: starting in 2029, the maximum net expenditure growth rates will be based on 2028 expenditure levels, which will have been elevated due to the exemption for defence spending. Furthermore, the Commission and the Council provide additional flexibility for countries with activated escape clauses: the maximum net expenditure growth rates in their MTPs (excluding the exemption for defence spending) no longer have to respect the safeguards. This means that, up to 2028, escape clause activation for higher defence spending may also result in higher non-defence spending. 4
EU rules need to be strictly applied
Member States implement their plans rigorously – and the Commission is rigorous in monitoring them. Key considerations here include the following: i) Fiscal surveillance does not give an optimistic assessment of the budget effects of revenue-related measures in order to comply with budget limits. ii) If, in its fiscal surveillance, the Commission identifies deviations, it will actually take the procedural steps that have been set out. In other words, it will not attempt to exploit exemptions, and it will increase the pressure to make adjustments. Future plans will be drawn up in strict compliance with the existing rules: i) The national escape clauses that have now been activated will not be extended. Escape clauses are an important feature of fiscal rules. However, they must not be a permanent fixture, or else sound government finances would be put at risk. The current escape clause should therefore only serve to facilitate the transition to higher defence spending. It is important to finance what will probably be higher structural spending in the future without borrowing. Defence capabilities and sound government finances are not diametrically opposed. Both are needed to ensure a country’s resilience. ii) The safeguards apply as agreed. This means that, once the escape clause has been deactivated, the constraints for the net expenditure path will become binding again. It was, in any case, inappropriate to use the escape clause for defence spending to also allow scope for additional general spending. iii) Net expenditure growth ceilings spread the planned adjustment steps evenly. A government cannot postpone consolidation requirements past its term. iv) Key macroeconomic assumptions, such as potential GDP and the GDP deflator, are verified as plausible by an independent institution – and this is done for each individual year. The assumptions are rather conservative, especially where debt ratios are high.
Member States publish their reference trajectories as soon as they receive them from the Commission. The Member States’ plans disclose expected deficit and debt developments. They explain what scope for spending results from which deviations from the reference trajectory. This information is updated if conditions change (e.g. if the escape clause was activated after the plan was drawn up). The Commission makes all assumptions available in a public database. Data from the Commission and from the Member States that are used to derive respective adjustment paths are publicly accessible. The Commission updates the assumptions whenever it conducts fiscal surveillance. It provides a clear picture of how deficit and debt ratios will develop based on current assumptions if a Member State hits its net expenditure ceilings. Inaccurate estimates are corrected at an earlier stage: As part of ongoing fiscal surveillance, the assumptions on which plans were based are also assessed. In the event of major revisions to the assumptions, the net expenditure growth ceilings for the following years are adjusted with the aim of at least partially correcting the budget effects of inaccurate estimates. The control account is maintained permanently. It is not set to zero with a new MTP . It remains open until the budget target has been achieved.
2 Tax revenue 9
2.1 Dynamic growth in the first half of 2025 will become more moderate over the remainder of the year
Wage tax grew by 6 % in the first half of the year, partly because taxable wage elements replaced tax-free wage elements (inflation compensation bonuses) to some extent. This effect is likely to ease up in the second half of the year. VAT receipts likewise increased significantly (+6½ %). Lower growth is now expected here, too: for one thing, in a year-on-year comparison, legislative changes last affected revenue positively in the first half of 2025. In particular, a reduced tax rate on natural gas and district heating was applicable until the end of March 2024. For another, extensive back payments were received in the second half of 2024. Such extensive back-payments are unlikely to be made in 2025. Revenue from the taxing of interest income and capital gains rose sharply. This is likely to have been attributable in particular to capital gains. In the second half of the year, the tax estimate did not anticipate any further growth compared with the same period of the previous year. Inheritance tax also contributed to the strong half-year growth (+€4 billion on the first half of 2024). This was evidently due to a one-off effect in Bavaria.
2.2 Tax relief for enterprises
3 Central government finances
3.1 Steeply rising deficits planned for 2025
The net borrowing limit, which is taken from the original debt brake, is tied to a deficit of €50 billion. Debt-financed deficits of €15 billion are thus permissible in line with the structural net borrowing limit of 0.35 % of GDP , together with €18 billion for calculated cyclical burdens and just over €16 billion for financial transactions (see Table 5.2, items 2.f2, 2.d and 2.e). Added to this is the deficit from the expanded scope for defence spending: the government plans to use this in the core budget with an additional deficit of €32 billion (see Table 5.2 , item 2.f1). It calculates a total figure of €75 billion for spending by the Federal Ministry of Defence, military support for Ukraine and other domestic security-related purposes. Of this, it deducts €43 billion (1 % of 2024 GDP ) to be financed within the regular borrowing limits. The Armed Forces Fund envisages a borrowing-financed deficit of €24 billion (see Table 5.2 , items 3.a and 1.b2). The new Infrastructure and Climate Neutrality Fund envisages a borrowing-financed deficit of €37 billion (see Table 5.2 , items 3.c and 1.b1). The other special funds will be less of a consideration, according to the plan (Table 5.2 , items 1.b3 and 1.b4).
Additional debt not focused on defence and infrastructure
In the draft budget for 2025, the minimum investment ratio of 10 % in the core budget is achieved precisely (see Table 5.2, item 4.a4), and central government can therefore spend funds from the Infrastructure and Climate Neutrality Fund. To calculate the ratio, spending on the sectoral exemption for defence is deducted (from total expenditure) in the denominator, resulting in a higher ratio. It would make sense to deduct the investment budgeted for the sectoral exemption (especially in the defence budget) from the numerator as well. However, there is no intention to do this. Consequently, this investment is financed by debt through the sectoral exemption. Since it is nonetheless included in the 10 % minimum investment ratio, corresponding scope for other purposes is created (see Table 5.2, item 4.a4-n). In addition, the planned figures for investment in the 2025 draft appear exaggerated. Not least, the government has set up a new precautionary item for investment in the amount of €1½ billion. It intends to use this to finance investment budgeted for in previous years that has not yet been disbursed. Up to now, the norm has been lower general provisioning not classified as being for investment purposes. To prevent investment from being included in the minimum ratio multiple times in a row or from being overbudgeted, the investment disbursed in the respective year should ultimately be the decisive factor. In the wake of the recent tax cuts for firms, state governments asked for compensation for their tax revenue shortfalls. Central government promised them a further €8 billion from the Infrastructure and Climate Neutrality Fund. However, the state governments do not have to use these funds for additional investment, but can instead use funds already reserved for the respective investment items in other ways.
Improving defence capabilities: compared with the actual 2024 level, NATO expenditure within the scope of the sectoral exemption is expected to increase by around €20 billion less than the related borrowing. The planned increase in NATO expenditure is used here (pragmatically) as a benchmark for additional defence spending. NATO expenditure will only increase by around €11 billion (after deducting the additional expenditure of the Armed Forces Fund, which will also be financed by debt; see Table 5.2, item 2.f1-n). By contrast, central government is planning on additional scope for borrowing of €32 billion for the defence spending sectoral exemption (see Table 5.2, item 2.f1). Revenue of the defence ministry, which is expected to amount to €1½ billion, would in fact also have to be deducted from this. It appears that there are no plans as yet to make such a deduction. Improving infrastructure: the difference between expenditure growth and borrowing is likely to be even greater for the Infrastructure and Climate Neutrality Fund. Its borrowing is expected to amount to €37 billion (see Table 5.2, item 3.c). However, central government’s planned investment spending for infrastructure 1 (core budget and special fund combined) will rise only slightly compared with the 2024 result, by around €2½ billion (see Table 5.2, item 3c-n less 4a4-n). The special fund’s investment transfers to state government (€8½ billion) are not intended to be conditional on additional infrastructure improvements. Given the sizeable deficits in the budgets of state and local governments, it is to be feared that they will instead use the funds reserved for them in the special fund to plug existing financing gaps. The Climate Fund will receive €10 billion from the special fund without any major new measures being envisaged to strengthen infrastructure or reduce greenhouse gas emissions. Instead, it plans mainly to close a financing gap in the gas storage levy, thereby lowering prices for gas consumption.
3.2 Deficit in 2025 probably lower than planned
3.3 Further significant increase in deficit planned for 2026
The government’s planning infers scope for a deficit of just over €45 billion from the old net borrowing limit. Of this amount, €15 billion is attributable to permissible structural borrowing of 0.35 % of GDP , €13 billion to cyclical burdens, €7½ billion to the acquisition of financial assets, and almost €10 billion to withdrawals from remaining reserves. The government is using the new scope for deficits in the core budget for defence policy, in the amount of just over €54 billion. The starting point is spending by the Federal Ministry of Defence, to strengthen Ukraine’s defence capabilities and for other domestic security purposes. Together, these amount to €97 billion. From this, 1 % of GDP is to be deducted (€43 billion).
Infrastructure and Climate Neutrality Fund: The deficit is set to climb from €37 billion this year to €59 billion next year. One contributing factor is that the fund is taking on a total of €6 billion in expenditure from the Climate Fund. This is for the promotion of microelectronics (investment grants to private enterprises) in addition to promoting the expansion of heating grids (investment grants to other government budgets). The rest of the additional expenditure is mostly budgeted for central government. A large part of it is intended for higher investment grants to Deutsche Bahn. These will essentially replace capital injections previously financed from the core budget. 17 Unlike this year, a marked increase in infrastructure investment is thus envisaged for 2026 (core budget and special fund combined; see Table 5.2, item 3c-n less 4a4-n). However, it remains to be seen whether central government will actually achieve this in view of the short lead time. To do so, it would seem necessary to swiftly simplify and speed up the planning and approval processes for such measures. Armed Forces Fund: The deficit is set to rise by €1½ billion to almost €26 billion. This means that the budgeted figure will use up just under half of the scope for borrowing that is scheduled to remain at the end of 2025. In addition to military procurements, €1 billion is also budgeted for interest expenditure on the debt accumulated by the fund to date. Climate Fund: The Climate Fund’s planned deficit will be halved to €2 billion. The remaining reserves are intended to plug this funding gap. Compared with the current year, there will be added expenditure of €6½ billion for grid fee subsidies. By contrast, expenditure of €3½ billion to offset the gas storage levy will be absent. Grants for energy efficient buildings are also set to be much lower. The government intends to shift spending on promoting microelectronics and heating grids to the Infrastructure and Climate Neutrality Fund. Revenue from that special fund will remain stable at €10 billion, and revenue from greenhouse gas emission allowances will see barely any growth. Fund for inflation-indexed federal securities: Central government is planning a deficit of €5 billion in 2026, following a surplus of €2 billion in 2025. This is because, next year, one inflation-indexed federal security is due for redemption. 18
3.4 Fiscal plan up to 2029 contains large deficits and major additional need for action
In structural terms, tax revenue will be only 2 % higher, dampened by tax cuts. Nominal growth will be higher. However, it partly offsets the decline in the still fairly high cyclical burden in 2026. Revenue will be dampened by the fact that large temporary inflows from NGEU in 2026 will cease after that (almost €11 billion).