Finland - AI Regulation Implementation (HE 46/2025)

Overview

Official name and status: Government proposal HE 46/2025 (Hallituksen esitys eduskunnalle EU:n tekoälyasetusta täydentäväksi lainsäädännöksi). The proposal is a national implementing bill submitted by the Government of Finland to Parliament to complement the EU Artificial Intelligence Act (Regulation (EU) 2024/1689). The text and supporting memorandum are published on Finlex (HE 46/2025). ([finlex.fi](https://finlex.fi/fi/hallituksen-esitykset/2025/46))

Purpose and high-level approach: The draft creates a framework for national supervision and enforcement of certain AI systems in Finland. It would (i) add a national act on the supervision of certain AI systems and amend sectoral laws where necessary; (ii) integrate AI supervision into Finland’s market surveillance system; (iii) designate competent national authorities and a central contact point; and (iv) provide rules for national administrative sanctions and a multi-member sanctions board (seuraamusmaksulautakunta). The proposal aims to rely on existing sectoral authorities (a decentralised model) while ensuring coordination through a central contact. Proposed national entry into force: 2 August 2025. ([finlex.fi](https://finlex.fi/fi/hallituksen-esitykset/2025/46))

Definitions

• AI Act / Tekoälyasetus — Regulation (EU) 2024/1689 of 13 June 2024; the EU-level legal framework being implemented and complemented. (EU AI Act, Art. 1–4). ([eur-lex.europa.eu](https://eur-lex.europa.eu/eli/reg/2024/1689/oj/eng?utm_source=openai))
• Supervisory authority / markkinavalvontaviranomainen — an authority designated under national law to carry out market surveillance and enforcement tasks required by the AI Act (Finland’s draft names several existing authorities and sets responsibilities). (HE 46/2025, §3.1; Perustelut). ([finlex.fi](https://finlex.fi/fi/hallituksen-esitykset/2025/46))
• Central contact point / keskitetty yhteyspiste — the national body that coordinates market surveillance and provides a single point of contact for the AI Act; the proposal names Liikenne- ja viestintävirasto (Traficom) for that role. (HE 46/2025, §3.10.6). ([finlex.fi](https://finlex.fi/fi/hallituksen-esitykset/2025/46))
• Seuraamusmaksulautakunta (Sanctions Board) — proposed multi-member board to determine larger administrative sanctions (above defined thresholds). The draft provides for the board’s role and an appeal path. (HE 46/2025, Perustelut §4.2). ([finlex.fi](https://finlex.fi/fi/hallituksen-esitykset/2025/46))

Governance and Institutional Framework

• Central Contact Point (Traficom) — the draft designates Liikenne- ja viestintävirasto (Traficom) as the central contact point to coordinate national market-surveillance authorities and provide expertise and support. This body would assist sectoral supervisors and act as a national coordinator under the AI Act. (HE 46/2025, §3.10.6). ([finlex.fi](https://finlex.fi/fi/hallituksen-esitykset/2025/46))
• Decentralised market-surveillance model — supervision of Annex III (high-risk) systems would be distributed to existing sectoral authorities (e.g., Tietosuojavaltuutettu [Data Protection Ombudsman] for several sensitive Annex III uses; Traficom for transport/telecom safety components; Energiavirasto for energy critical infrastructure; Turvallisuus- ja kemikaalivirasto for certain water/industrial safety uses). The draft explicitly maps sectoral responsibilities. (HE 46/2025, §3.10.6). ([finlex.fi](https://finlex.fi/fi/hallituksen-esitykset/2025/46))
• Financial Supervisory Authority (Finanssivalvonta) — the proposal contains targeted amendments to the law on Finanssivalvonta to give it information‑sharing powers and other supervisory tools relevant under the AI Act where financial-sector use-cases are concerned. (HE 46/2025, Perustelut). ([finlex.fi](https://finlex.fi/fi/hallituksen-esitykset/2025/46))

Key Focus Areas

1. Designation of national authorities and remit

• Explicit national assignment of reporting authorities, market-surveillance authorities and one or more notification authorities, in line with AI Act Article 70 and related governance chapters. The draft names specific Finnish authorities for designated Annex III domains. (HE 46/2025, §3.1 and §3.10.6). ([finlex.fi](https://finlex.fi/fi/hallituksen-esitykset/2025/46))

2. Market surveillance and enforcement

• Integration of AI supervision into the national market surveillance system rather than creating a wholly new standalone inspectorate. The draft proposes that the new law be added to the scope of the Market Surveillance Act. (HE 46/2025). ([finlex.fi](https://finlex.fi/fi/hallituksen-esitykset/2025/46))
• National sanctions regime: the proposal sets out procedures to impose administrative fines (seuraamusmaksut) and creates a sanctions board for higher-value penalties. The maximum levels for administrative sanctions, however, derive from the EU AI Act (Regulation (EU) 2024/1689, Art. 99–101): e.g., up to €35,000,000 or 7% of worldwide turnover for the gravest breaches; up to €15,000,000 or 3% for high‑risk obligations; up to €7,500,000 or 1% for incorrect/misleading information. (EU AI Act Art. 99; HE 46/2025, Perustelut). ([eur-lex.europa.eu](https://eur-lex.europa.eu/eli/reg/2024/1689/oj/eng?utm_source=openai))

Implementation Framework

Phased approach

• Short-term: designate national authorities and set up the central contact point; ensure sectoral law amendments to provide enforcement tools and data‑sharing authorities. The draft proposes these legal changes to be in force by 2 August 2025. (HE 46/2025). ([finlex.fi](https://finlex.fi/fi/hallituksen-esitykset/2025/46))
• Medium-term: operationalise cooperation mechanisms between sectoral supervisors, stand up the sanctions board, and set guidance for testbeds (sandboxes) as required by AI Act Art. 57. (HE 46/2025; EU AI Act, Art. 57). ([finlex.fi](https://finlex.fi/fi/hallituksen-esitykset/2025/46))
• Long-term: full application of the EU AI Act in its phases (notably full application of the AI Act by 2 August 2026, with certain provisions effective earlier or later per the EU regulation). Finland’s national rules will continue to be aligned with EU timing. (EU AI Act Art. 113; HE 46/2025). ([eur-lex.europa.eu](https://eur-lex.europa.eu/eli/reg/2024/1689/oj/eng?utm_source=openai))

Monitoring and Evaluation

• Measurement framework: supervisory activities will be monitored through regular reporting between sectoral market-surveillance authorities, the central contact point and the European Artificial Intelligence Board (EAI Board) at EU level. The draft emphasises coordination and information exchange. (HE 46/2025; EU AI Act governance chapters). ([finlex.fi](https://finlex.fi/fi/hallituksen-esitykset/2025/46))
• Review cycle: the AI Act provides EU-level review points; the national law sets up administrative arrangements to ensure compliance and to update sectoral rules where needed. (HE 46/2025). ([finlex.fi](https://finlex.fi/fi/hallituksen-esitykset/2025/46))

Penalties, Liability, and Appeals

• Administrative penalties: national enforcement is calibrated to permit the AI Act’s maximum administrative sanctions (see EU AI Act, Art. 99). The HE proposes a national sanctions board (seuraamusmaksulautakunta) to determine major sanctions and to protect legal remedy rights for respondents. (HE 46/2025; EU AI Act Art. 99–101). ([finlex.fi](https://finlex.fi/fi/hallituksen-esitykset/2025/46))
• Appeals: the proposal provides for appeal and judicial review mechanisms for sanction decisions; details are specified in the bill's procedural provisions and supporting memorandum. (HE 46/2025). ([finlex.fi](https://finlex.fi/fi/hallituksen-esitykset/2025/46))

Relationship to Other Instruments

The draft amends and interacts with: the national Market Surveillance Act, the law on Finanssivalvonta (Financial Supervisory Authority), the Energiavirasto Act, and the enforcement of fines (sakon täytäntöönpano). It anchors AI supervision in existing sectoral regulatory frameworks rather than creating fully new supervisory agencies. (HE 46/2025). ([finlex.fi](https://finlex.fi/fi/hallituksen-esitykset/2025/46))

International Alignment

The proposal explicitly implements the EU AI Act (Regulation (EU) 2024/1689) and follows EU timelines and governance structures (European AI Office, EAI Board). National provisions are limited to the leeway provided by the AI Act (e.g., Article 5(5) re: biometric remote identification, and Article 57 on sandboxes). (EU AI Act; HE 46/2025). ([eur-lex.europa.eu](https://eur-lex.europa.eu/eli/reg/2024/1689/oj/eng?utm_source=openai))

Implementation Timeline

• 2024–10/2024 — national preparatory work and public consultation on draft (background and public consultation referenced in preparatory notes). (background materials summarised in HE). ([finlex.fi](https://finlex.fi/fi/hallituksen-esitykset/2025/46))
• 2025 — Government proposal registered as HE 46/2025 and submitted to Parliament (HE 46/2025). Proposed national entry into force: 2025-08-02. ([finlex.fi](https://finlex.fi/fi/hallituksen-esitykset/2025/46))
• 2025–2026 — phased operationalisation; full EU AI Act application and national measures coordinated with EU timetable (EU AI Act Art. 113). ([eur-lex.europa.eu](https://eur-lex.europa.eu/eli/reg/2024/1689/oj/eng?utm_source=openai))

Sources and References