Big Clean-up Among State Operators: What Are We Talking About?

In his general policy statement, Prime Minister François Bayrou set the tone: a thousand bodies would exercise public action, some of which "without real democratic control", denouncing a "labyrinth that a rigorous country can hardly be satisfied with".

Public Accounts Minister Amélie de Montchalin said on Sunday that she hoped to save €2 to €3 billion by eliminating or merging a third of state-owned operators, with the exception of universities.

What the law says

The organic law relating to finance laws (LOLF) defined in 2021 the notion of operators, these public or private bodies to which the State delegates all or part of the implementation of its policies.

They must meet several conditions: contribute to a public service activity, benefit from majority funding from the State, and be placed under its supervision.

According to the 2025 finance law, there are 434 of them with very varied legal statuses.

In total, in 2025, operators will receive more than 77 billion euros in public funding, whether in the form of credits or allocated taxes, a decrease of 3,6 billion euros compared to 2024, according to the 2025 finance bill.

Nearly 500 operators

French Office for Biodiversity (OFB), Paris National Opera, National Heritage Institute, regional health agencies (ARS), National Office for Information on Education and Professions (Onisep): the field of operators is marked by great heterogeneity, according to the annex to the draft finance law dedicated to them.

Five giants capture a significant portion of state funding for "public service costs," with universities taking the lead (12,4 billion euros), which Amélie de Montchalin has assured will not be affected by mergers or closures.

Next come the National Centre for Scientific Research (CNRS), which receives 3,1 billion euros in subsidies, France Compétence (2 billion euros), France Travail (1,4 billion euros), and the Atomic Energy Commission (CEA) for 1,3 billion euros.

Since 2008, the number of operators has decreased considerably, from 649 to 434. And between 2010 and 2020, the number of operators had already decreased by a quarter, "largely due to mergers," the Court of Auditors recalled in 2021.

By comparison, the credits allocated by the State to operators amounted to 22,4 billion euros in 2008, and reached 51 billion euros in 2018, according to budget documents.

Careers

The total number of public sector jobs employed by operators is subject to an annual ceiling set by the Finance Act. According to the 2025 Finance Bill, they employ 491.613 full-time equivalents.

Here again, employment levels vary greatly from one operator to another: while that of France Travail is set at 48.647 full-time equivalents, that of the Institute for Studies and Research for Law and Justice (IERDJ) is capped at 5 full-time equivalents.

The total payroll of all operators will amount to 33,5 billion euros in 2025, and 50% of them have fewer than 250 jobs.

Commissions, administrative authorities

Other "consultative or deliberative bodies placed directly under the Prime Minister or ministers" exist, but their weight in public finances is unparalleled compared to that of the operators.

There are 317 of them in total, including the National Council for High School Life and the National Committee for Social Action. A significant portion of these bodies have zero operating costs.

Independent administrative authorities (AAI), such as the CNIL or the Nuclear Test Victims Compensation Committee, and independent public authorities (API), such as the French Anti-Doping Agency or the Financial Markets Authority (AMF), complete the picture.

By 2025, the AAIs are expected to receive €570,6 million in state funding, and €121 million for the APIs. They employ 5.315 full-time equivalent employees.