The Register of Public Sector Bodies provides the basis for the preparation of Government Finance Statistics (GFS) and Excessive Deficit Procedure (EDP) reporting for Ireland. It lists all organisations in the State which are considered to be in the general government sector for the purposes of GFS and the EDP. It also lists organisations which, while under public control, are not part of the general government sector. The Register is published every April and October using updated data from annual surveys and statistical classification reviews.
Figure 1.1 in the Public Sector chapter displays a breakdown of the Register by ESA 2010 subsector.
A complete list of the Register in excel and csv formats are available here Register of Public Sector Bodies 2024 - Final Table 1.1 (XLS 52KB) and Register of Public Sector Bodies 2024 - Final Table 1.1 csv file.
The Central Statistics Office (CSO) has published Guidelines on the provision of methodological advice on statistical classifications for Government Finance Statistics and the Excessive Deficit Procedure.
Under Council Regulation (EC) No. 479/2009 as amended by Council Regulation (EU) No 679/2010, and Commission Regulation (EU) No 220/2014 the CSO is responsible for the official reporting of Ireland’s General Government Balance (GGB), Debt (GGDebt), other Government Finance Statistics (GFS) and Excessive Deficit Procedure (EDP) statistics. This requires the CSO to define the scope of the general government and public sectors in Ireland.
The legally binding Accounting Regulations (EU) 549/2013 as amended by (EU) 734/2023 which must be used by all EU Member States for producing these statistics are those of the European System of Accounts 2010 (ESA 2010). The Manual on Government Debt and Deficit (MGDD 2022) provides further guidance on the implementation of ESA 2010 when reporting GFS and EDP.
ESA 2010 (paragraph 2.111) and the MGDD 2022 (paragraph 1.2.1.1) defines the general government sector as “all institutional units which are non-market producers whose output is intended for individual and collective consumption and are financed by compulsory payments made by units belonging to other sectors, and institutional units principally engaged in the redistribution of national income and wealth, which is an activity mainly carried out by government”.
The types of entities comprising the general government sector include non-market public producers, i.e. corporations and quasi-corporations controlled by government if their output is mainly non-market. The general government sector excludes “market public producers”. MGDD 2022 sets out the steps in the statistical sector classification process:
ESA 2010 defines an institutional unit using four criteria, the ability to:
An entity which fails the criteria of an institutional unit is classified in the same sector as the body which controls it. Therefore, publicly controlled units which are not institutional units are classified in general government. For example, most extra-budgetary funds are not categorised as institutional units.
ESA 2010, paragraph 20.18, defines control as "the ability to determine the general policy or programme of that entity". Paragraphs 2.38 and 2.39 of ESA 2010 set out indicators of control for corporations and non-profit institutions (see Table 1 below). They also note in each case that while a single indicator may be sufficient to establish control it may be necessary to assess a combination of indicators to determine control of the entity. Control can be a sufficient condition for an entity to be classified into government. For example, the MGDD gives specific guidance for control of non-profit institutions and educational units, see section 1.2.3.2 paragraphs 36 to 42.
If an entity is determined to be under public control (but the level of control itself is not deemed sufficient to bring it automatically into government), it must then be established whether it should be classified in the general government sector or in the commercial public sector. This is done by using the market test. The market test states that if the entity covers at least 50% of its costs on an ongoing basis (the criteria used is a rolling three-year period) then the entity is classified into the commercial public sector. If the entity fails the market test, it is deemed to be non-commercial and is therefore classified into the general government sector.
The concept of “control” in national accounts terms does not mean that an organisation has no independence of action or decision-making function. Rather it means that any type of organisation, which may be established by government or by civil society, which is assessed, under the criteria listed in Table 1, to have a relationship with government that can be considered “control” as defined under ESA 2010.
| Corporations (ESA 2010 para 2.38) | Non-profit institutions (ESA 2010 para 2.39) |
|---|---|
| Government ownership of the majority of the voting interest | Provisions of the enabling instruments |
| Appointment of officers | Contractual agreements |
| Government control of the board or governing body | Degree of financing |
| Government control of the appointment and removal of key personnel | Degree of government risk exposure |
| Government control of key committees in the entity | |
| Government possession of a golden share | |
| Special regulations | |
| Government as a dominant customer | |
| Borrowing from government |
Other bodies (i.e. those who do not have a sufficient level of government control to bring them straight into the general government sector) are also considered commercial institutional units that are controlled by government (e.g. ESB, PTSB) and are classified in the ‘commercial public sector’. These bodies would be classified as either being in the non-financial public corporations sector (S.11) or the financial public corporations sector (S.12).
To determine that a publicly controlled producer is a commercial unit it must charge “economically significant prices”. That is, prices which substantially influence the amount of the good or service which the producer is willing to supply and the consumer is willing to purchase. If the publicly controlled producer is the only supplier to government of goods or services* it must do so on the basis of competition with private producers, e.g. through a tendering process, in order to be considered a market producer. It must also have a profit-based incentive to adjust supply and must be able to operate under market conditions and to meet its financial obligations.
*Providers of "ancillary services" such as transport, financing, purchasing, computer services etc. who provide services exclusively to a parent unit are classified in the same sector as their parent unit.
The CSO conducts a market test for entities that are deemed under the control of government. In essence, this test measures the commerciality of an entity and determines whether a publicly controlled body stays in the public sector or is classified into the general government sector.
The methodology for this test is set out in ESA 2010 paras 20.30-20.32 and measures whether the entity is covering at least 50% of its production costs through sales over a rolling three-year period. A publicly controlled entity is said to "pass" the market test when the entity covers, from its own resource income, over 50% of its costs. The CSO monitors the market test results on an annual basis.
If an entity under government control continues to pass the market test over a rolling three-year period, it is classified in the public corporations sector. If it fails the market test for three consecutive years it is classified in the general government sector as it is deemed a non-market producer.
The Register is based on a number of sources including government publications, annual reports and data collected by the CSO. The CSO undertakes annual joint surveys of all:
These surveys update existing data and obtain further information as needed on all bodies under the aegis of these government units to ensure their correct statistical sector classification. Updates to the Register include for example the establishment, cessation and merger of government-controlled bodies over time. The commercial/non-commercial (market/non-market) status of bodies is also reviewed. Consequently, the Register of Public Sector Bodies is up-dated twice a year in April and October. The Register also includes the results of statistical classification reviews completed by the Government Accounts Classifications Division throughout the preceding 12 months.
Central Government (S.1311) comprises central government departments and additional votes, extra budgetary funds, non-commercial agencies and organisations providing health and personal social services. The criteria where an entity is deemed to be under the aegis of the department can be found on page 53 of the Department of Finance Governance Framework. Further information on these organisations can be found below.
The CSO surveys central government departments annually to gather information on entities under their aegis. Each entity is reviewed in terms of their statistical sector classification. The Register lists entities deemed to be controlled by the government department for statistical purposes. The ESA 2010 statistical criteria are applied in the sector classification decisions. A breakdown of all departments by their votes, extra-budgetary funds, non-commercial (non-market) entities and commercial (market) entities are included in the Central Government chapter.
Most Extra Budgetary Funds (EBFs) are not treated as institutional units as they generally have no autonomy of decision. A government department, or in some cases the National Treasury Management Agency (NTMA), manages the EBFs. Budgetary data in respect of these funds are reported in either the Appropriation Accounts, the audited accounts of the fund in question or the NTMA Annual Report.
A number of HSE Section 38 and Section 39 organisations providing health and personal social services are classified in the central government sector. In March 2023, responsibility for organisations providing community disability specific services transferred from the Department of Health to the Department of Children, Equality, Disability, Integration, and Youth (DCEDIY). Disability services are delivered through HSE services, section 38 and section 39 agreements. Since 2023 monies to fund disability services are voted to the Department of Children, Disability and Equality.
Therefore, for statistical purposes, these organisations are listed under the aegis of DCEDIY with the exception of one service provider, whose majority funding is from the Department of Housing, Local Government and Heritage. A full list of 28 organisations providing health and personal social services are included in table 3.19 in the in the Central Government chapter. The CSO continues to the monitor and review Section 38 and Section 39 organisations. The classification work is ongoing in this area.
The Register of Public Sector Bodies 2024 – Final includes the results of the January 2025 survey of central government, reference year 2024. There have been no changes to the central government sector since the April iteration.
Local Government (S.1313) comprises Local Authorities, Regional Assemblies and Approved Housing Bodies. Further information on these organisations can be found below.
The CSO surveys local authorities annually via an electronic questionnaire (eQ) to gather information on entities under their aegis.
In April 2025 the CSO issued the survey to all Local Authorities. The survey collected data for the reference year 2023. The online format continues to improve the quality of local government data. The CSO will continue to work with the Department of Housing, Local Government and Heritage and Local Authorities to further improve the timeliness of this data.
Each entity is reviewed in terms of its statistical sector classification. The Register lists entities deemed to be controlled by the local authority for statistical purposes. The ESA 2010 statistical criteria are applied in making the sector classification decisions. The non-commercial (non-market) entities are included in Table 4.2 in the Local Government chapter. The commercial (market) entities are included in Table 4.3 in the Local Government chapter.
The Register of Public Sector Bodies 2024 – Final includes the April 2025 survey results for local government, reference year 2023.
Table 7.2 lists entities added and removed to the local government sector.
Entities added and removed from the local government sector can include entities reclassified between the public and private sectors. It can also include entities reclassified between the general government sector and the public corporations sector following a review of the market test analysis.
Table 7.3 Joint Ventures between local government and central government.
Joint Ventures receive government funding from both local and central government. Table 7.3 lists the entities that receive central government funding while under the remit of the Local Authority. The CSO continues to monitor and review all Joint Ventures. This classification work is ongoing.
The Local Government Reform Act 2014 provided for the existing 8 regional authorities and 2 regional assemblies to be replaced by 3 new regional assemblies. The membership of a regional assembly consists of members of the local authorities within the region. The main function is to draw up regional, spatial and economic strategies.
Section 6 of the Housing (Miscellaneous Provisions) Act, 1992 allows for the designation of certain non-profit entities as Approved Housing Bodies (AHBs). This status allows a voluntary housing body to access funding for the provision of social housing under schemes established by the Department of Housing, Local Government and Heritage. Section 6 of the Housing (Miscellaneous Provisions) Act 1992 sets out the conditions to become an AHB.
In 2017 16 Tier 3 AHBs, comprising around 80% of the total housing stock of the voluntary housing sector, were classified to the local government sector.
In 2020, 52 Tier 2 AHBs were reviewed and classified as follows:
Further reviews of AHBs were undertaken in 2023 and 2024. A further 3 were reclassified to the local government sector in 2023 with 2 more bodies being added in 2024 as providing housing services is their primary activity. A full list of 51 Approved Housing Bodies are included in table 4.5 in the Local Government chapter.
Since September 2021, the CSO presents Social Security Funds (S.1314) separately in the government finance statistics publications. This facilitates harmonisation and comparability with other European Member States. S.1314 includes the Social Insurance Fund (SIF), Eircom No.2 and Coillte No.2 pension funds.
Public corporations are government-controlled units, by means of either direct or indirect government ownership, but are classified outside the general government sector for national accounts and government accounts purposes.
Detailed data on public corporations (including data on liabilities) is collected in the context of the Enhanced Economic Governance package (the "six-pack") that was adopted in 2011. As part of its statistical obligations, the CSO sends data on public corporations to Eurostat on an annual basis.
Tables in the Central Government and Local Government chapters list the public corporations as per updated information from the annual central government survey undertaken during quarter 1 2025 and the survey of local authorities undertaken during quarter 2 2025.
The Public Corporations chapter includes financial data on the liabilities of public corporations, based on their most recent annual financial statements. Therefore, the liabilities data is based on the annual reports of public corporations listed in the October 2024 Register of Public Sector Bodies. The next update of this dataset will occur in December 2025 and will be included as part of the April 2026 version of this publication.
The liabilities of public corporations, i.e. government-controlled entities classified outside the general government sector, are defined as the stock of liabilities at the end of the year, based on the annual financial accounts of the corporations. These government-controlled entities are classified outside general government due to their behaviour as commercial (market) units.
Council Directive 2011/85 on requirements for budgetary frameworks of the Member States requires EU Member States to publish relevant information on contingent liabilities with potentially large impacts on public budgets. The data collection ensures further transparency of public finances in the EU by giving a more comprehensive picture of EU Member States’ financial positions and a more complete picture in terms of debt sustainability for an economy.
The data on liabilities of public corporations, non-financial corporations (S.11) and financial corporations (S.12) sectors of the economy, are collected when the liabilities exceed the 0.01% of GDP threshold as set out in EU legislation. This data refers only to public corporations classified outside the general government sector. The liabilities of any public corporations that are currently classified inside general government are already fully reflected in the government accounts as these entities are deemed to be non-market (i.e. non-commercial) which are deemed to be in government by definition.
A number of aspects should be taken into account when analysing the liabilities of public corporations:
Further financial data is collected from relevant annual reports when total liabilities exceed the (European Commission) threshold of 0.01% of GDP. This data is supplied by all EU Members States to Eurostat.
The Central Bank of Ireland (CBI) mission is to "serve the public interest by maintaining monetary and financial stability while ensuring that the financial system operates in the best interests of consumers and the wider economy." However, for the analysis in this publication, the CBI has been removed as its mandate is specific and different to the other Public Corporations.
Under the European System of Accounts (ESA2010), Central banks are classified under their own subsector. The subsector (S.121) consists of all financial corporations and quasi-corporations whose principal function is to issue currency, to maintain the internal and external value of the currency and to hold all or part of the international reserves of the country. The CBI serves the public interest by safeguarding monetary and financial stability and by working to ensure that the financial system operates in the best interests of consumers and the wider economy. The principal strategic responsibilities of the CBI are set out on its website and in its Annual Reports.
Contingent liabilities are defined in ESA 2010 rules, see paragraphs 5.08 (page 125) to 5.11. Put simply, a contingent liability is a potential liability depending on whether some uncertain future event occurs. They are not included in general government gross debt. ESA 5.11: "Although contingent assets and contingent liabilities are not recorded in the accounts, they are important for policy and analysis, and information on them needs to be collected and presented as supplementary data. Even though no payments may turn out to be due for contingent assets and contingent liabilities, a high level of contingencies may indicate an undesirable level of risk on the part of those units offering them."
General government gross debt (GG debt) is defined in the EU regulations implementing the Maastricht Treaty as the gross debt liabilities of the consolidated general government sector, at nominal value.
‘Gross’ means that the value of any financial assets held by general government cannot be deducted from the GG debt. In Ireland’s case, this means that the liquid assets which are deducted from the ‘Gross’ national debt in arriving at the audited national debt cannot be deducted from the GG debt.
‘Debt liabilities’ are defined as the ESA 2010 categories AF.2 (Currency and deposits), AF.3 (Debt securities), and AF.4 (Loans).
This definition excludes liabilities in derivatives, equity liabilities, pension and insurance liabilities and accounts payable.
‘Consolidated’ means that any money owed by one entity within general government to another is excluded from the total GG debt.
‘Nominal value’ is defined in the governing regulation as face value. If debt is sold at a discount, it is the undiscounted value of the instrument, rather than the amount actually received, that is shown in the GG debt. In other statistical contexts, ‘nominal value’ means face value plus any interest accrued but not paid; however, such interest is excluded from GG debt by definition.
NACE is the Statistical Classification of Economic Activities in the European Union. NACE is an acronym derived from the French title 'Nomenclature générale des Activités économiques dans les Communautés Européennes'. In compliance with EU regulations the NACE Rev. 2 classification system is used in this publication.
The high level NACE Rev.2 sections are:
The European Commission provides the most up to date information on the Nace Rev 2 classification on its website.
From January 1, 2025, European statistics are now produced based on a new version NACE Rev. 2.1. NACE Rev. 2.1 introduces new concepts at all levels of the classification, and restructures a number of the existing headings. The previous version of NACE is being used for this publication as the data refers to 2024. The Register of Public Sector Bodies 2025 - Provisional publication (due to be published in April 2026) will produce NACE based on NACE Rev. 2.1 alongside NACE Rev 2 classifications.
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