Proposal for a Council Regulation amending Regulation (EC) No 1683/95 laying down a uniform format for visas as regards the numbering of visas
Date: 2008-04-14
Institutions: European Commission
Subjects: EU visa policy, European standard, admission of aliens, foreign national, harmonisation of standards, identity document, information system, technical specification

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 14.4.2008 
COM(2008) 188 final 

2008/0074 (CNS) 

Proposal for a 

COUNCIL REGULATION 

amending Regulation (EC) No 1683/95 laying down a uniform format for visas as 
regards the numbering of visas 

(presented by the Commission) 

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EXPLANATORY MEMORANDUM 

1. 

CONTEXT OF THE PROPOSAL 

•  Grounds for and objectives of the proposal 

The visa number is an integral part of the uniform format for visa. It is inserted in order 
to identify the individual visa issued to a third country national by one of the Member 
States. The number is printed on the sticker during the production process before the 
personalisation  in  order  to  identify  lost  or  stolen  blank  documents.  It  also  serves  to 
register visa stickers in order to control stocks and issued visas. 

The  visa  numbering  is  currently  set  out  partly  in  the  Annex  to  Regulation  (EC)  No 
1683/95  laying  down  a  uniform  format  for  visa1  and  partly  in  the  technical 
specifications  adopted  by  the  Commission2.  It  consists  of  the  number  of  the  visa, 
preceded  by  the  letter(s)  of  the  issuing  Member  State  as  defined  in  number  3  of  the 
annex to the Regulation. The letter(s) currently refer to the country codes used for car 
plates. The International Civil Aviation Organisation (ICAO) has set out standards, for 
machine  readable  travel  documents  and  in  particular  a  list  of  country  codes.  In 
accordance with the ICAO standards, the first line of the machine readable zone must 
include the 3 letter ICAO country code of the issuing State and the second line the visa 
number (using nine entry positions). The uniform format for visas has to be machine 
readable and therefore ICAO compliant, in order to speed up the control process at the 
border. 

As the visa number used in the second line of the machine readable zone is limited to 9 
characters,  some  problems  occurred  in  the  past  with  the  current  visa  numbering: 
Firstly, Member States interpreted the numbering in their own way (some using more 
than 9 characters which could not fit into the machine readable zone and was therefore 
only partly filled in), which met the requirements of their own visa sticker production 
process, but was not fully compliant with both Regulation (EC) No 1683/95 and ICAO 
specifications.  Consequently  the  visa  could  not  be  read  by  machines  and  had  to  be 
entered  manually  in  the  system  or  could  even  not  be  retrieved.  Secondly,  the  current 
wording of the technical specifications for the uniform format for visas does not allow 
sufficient  character  spaces  for  visa  sticker  serial  numbers  for  those  countries,  which 
issue large numbers of visas. Furthermore, certain incoherence occurred as the country 
code used in the machine readable zone corresponds to the ICAO code and the country 
code  used  in  the  visa  sticker  number  followed  the  car  plate  system.  Until  now  these 
differences were not that important as the visa is only visually inspected at the border 
or checked by reading the machine readable zone. 

Once  the  Visa  Information  System  (VIS)  is  in  place,  verification  at  external  border 
crossing  points  will  in  principle  be  performed  using  the  visa  sticker  number  in 
combination  with  the  fingerprints  of  the  holder.  The  VIS  will  retrieve  the  relevant 
application file for this visa from the visa sticker number and will then verify whether 
the fingerprints of the person presenting the visa at the border match those entered by 
the consular post in the application file. In the majority of cases, the request to the VIS 
will be introduced by reading of the machine readable zone of the visa. The VIS has 

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OJ L 164, 14.07.1995, p. 1-4 
Decision 2/96 of 07.02.1996 and Decision COM(2000) 4332 of 27.12.2000, unpublished 

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therefore to rely on a unique visa number, which is a coherent number printed on the 
visa sticker and in the machine readable zone.  

Consequently, it  is necessary to change the current  numbering of the visa in order to 
have a unique visa sticker number thus avoiding several visa records coming up during 
the verification process, instead of the only relevant application file. At the same time, 
it seems appropriate to change for the ICAO country codes for the visa sticker number 
in order to be ICAO compliant. 

As regards the country code in latent image, it would in principle be coherent to change 
it  as  well.  However,  as  the  country  code  in  the  latent  image  is  printed  in  intaglio 
printing, it would be necessary to change the printing plates, which is very costly. The 
change of the latent image is not urgent as it doesn't relate to the numbering. It should 
be adapted at a later stage when other amendments of Regulation (EC) No 1683/95 will 
be prepared in order to avoid high costs now. 

•  General context 

The introduction of the VIS as a system for the exchange of visa data represents one of 
the  key  initiatives  within  EU  policies  aimed  at  establishing  an  area  of  freedom  and 
security.  The  VIS  will  improve  the  implementation  of  the  common  visa  policy, 
consular  cooperation  and  consultation  between  central  visa  authorities  in  order  to 
facilitate  the  visa  application  procedure,  to  prevent  "visa  shopping",  to  facilitate  the 
fight against fraud and checks at external border crossing points and within the territory 
of Member States, to assist in the identification and return of illegal immigrants and to 
facilitate  the  application  of  the  "Dublin  II  Regulation"  (EC)  No  343/20033  and  to 
prevent threats to internal security of any of the Member States.  

In this context it is essential that border guards checking the VIS can use a unique visa 
sticker number in order to find the record which will be verified against the fingerprints 
of the person presenting him/herself at the border. 

•  Existing provisions in the area of the proposal 

As the current wording of the provisions in Regulation (EC) No.1683/95 laying down a 
uniform  format  for  visas  and  the  additional  technical  specifications  is  insufficient  to 
provide for consistent and unique visa sticker numbering to be used in the VIS, there is 
a need to change the way visa stickers are numbered before the VIS enters into force. 

Main organisations/experts consulted 

Member States experts and VIS experts were consulted in order to find the right system 
for the numbering of the visa sticker in a coherent way. 

•  Impact assessment 

In  the  event  that  the  status  quo  as  regards  visa  numbering  was  allowed  to  continue, 
biometric  verifications  would  not  reliably  work  in  the  Visa  Information  System.  It  is 
necessary therefore either to enforce the existing standard for visa numbering, and its 
uniform  transfer  into  the  Machine  Readable  Zone  (MRZ),  or  to  identify  another 

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OJ L 50, 25.2.2003, p. 1–10 

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alternative solution. The existing standard was not favoured due to the lack of character 
spaces permitted. 

The  technical  Committee  established  by  Article  6  of  Regulation  (EC)  No.1683/95 
evaluated several options: 

Option 1  

All Member States ensure they have 9 character visa sticker numbers, beginning with 
the country code as currently provided in the technical specifications, and that these are 
reproduced identically on line 2 of the MRZ.  

Option 2  

A new system would be introduced, still using 9 characters, but replacing the current 
prefixes with the recognised ICAO (ISO) codes, which consist of 3 letters (except for 
Germany  using  only  letter  "D").  In  addition,  6  characters  can  be  used.  These  can 
consist  of  letters  and  numbers  which  will  give  a  maximum  of  2.176.782.335  serial 
numbers.  

Option 3  

Print in MRZ line 2 the visa sticker number but without the country code. The country 
which issued the visa could then be identified from line 1 of the MRZ. This option will 
give 999.999.999.999 serial numbers. In the upper right corner, no country code would 
appear as it could be read out in the machine readable zone. 

The  experts  considered  that  all  these  options  would  not  be  appropriate  and  found  an 
agreement on the solution to separate the country code from the visa number. The visa 
number,  which  has  nine  numbers,  will  be  printed  in  box  5  of  the  visa  sticker  (upper 
right  corner).  In  order  to  identify  blank  visas  and  to  generate  a  unique  number,  the 
country code, adapted to the code of ICAO used in the machine readable zone, will be 
printed  in  the  background  printing  just  underneath  the  number  (new  box  5a).  The 
impact of the identified solution is not only that a unique visa sticker number will be 
created  but  also  that  additional  character  spaces  will  be  made  available,  thereby 
assisting those Member States issuing large numbers of visas. Member States will need 
to  make  changes  to  their  printing  processes  and  to  distribute  the  new  visa  stickers  to 
Consulates  before  the  VIS  becomes  operational.  Once  the  VIS  becomes  operational, 
Member States will be able either to connect Consulates everywhere to the system or, 
as  a  minimum,  to  follow  a  regional  roll-out  schedule.  Those  that  do  not  begin  using 
VIS in locations ahead of the roll-out schedule will be able to use up stocks of old visas 
in those regions. Otherwise remaining stocks must be securely destroyed.  

In  order  to  implement  this  proposal,  the  technical  specifications  have  to  be  modified 
accordingly once the present proposal is adopted as changes to the uniform format have 
to be made. 

2. 

LEGAL ELEMENTS OF THE PROPOSAL 

•  Summary of the proposed action 

The numbering of the visa sticker, which is printed during the production process, must 
be  adapted  to  the  new  requirements  of  the  VIS  and  its  legal  basis.  The  visa  sticker 
number  in  the  system  must  be  unique  in  order  to  identify  the  correct  application  file 

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against which fingerprints are to be compared during verification. 

•  Legal basis 

Article 62 2. (b) (iii) TEC 

In relation to the participation of the United Kingdom and Ireland, it is considered that 
they participate in this measure. The basic Regulation (EC) No 1683/95 was based on 
the former Article 100c of the EC Treaty. After the entry into force of the Amsterdam 
Treaty,  this  wasn't  changed  or  replaced  as  it  happened  with  Regulation  (EC)  No 
539/2001, which was entirely redrafted under the new legal basis. As a consequence it 
is  assumed  that  the  United  Kingdom  and  Ireland  still  participate  in  measures  which 
have  been  adopted  under  the  first  pillar  already  before  the  entry  into  force  of  the 
Amsterdam Treaty. Therefore no recitals have been added. 

•  Proportionality principle 

The  proposal  complies  with  the  proportionality  principle  as  Member  States  cannot 
achieve the same result on their own, thus Community action is necessary. 

•  Choice of instruments 

Proposed instrument: Modification of Regulation (EC) No 1683/95. 

3. 

BUDGETARY IMPLICATION 

The proposal has no implication for the Community budget. 

•  Detailed explanation of the proposal 

Article 1 

Article 1 contains all necessary changes to be made to the Annex for the envisaged change of 
the serial numbering on the visa sticker.  

The last two changes (in paragraph 5. and 6.) relate to the changes introduced by Regulation 
(EC) No 334/20024. The Annex was not adapted at that time, because Member States at that 
stage had not yet produced the new visa sticker and therefore a new specimen model was not 
available. As a consequence, the Annex to the Regulation remained unchanged. Now it has to 
be brought in line with the new model which is inserted in the annex. As the security element 
referred to in Point 1 ("a sign consisting of nine ellipses") was replaced by the photograph in 
the new visa, the text of Point 1. has consequently to be replaced by the text of Point 2a and 
Point 2a has to be deleted. 

Article 2 

This Article sets out the implementation framework.  

It  is  envisaged  that  the  VIS  will  be  ready  for  operations  in  May  2009  and  will  go-live 
thereafter once Member States have confirmed they have made the necessary arrangements. It 
is essential that Member States use the visa stickers with the new numbering from the start of 
VIS becoming operational, at least in the first countries of the roll-out; the "old" visa stickers 

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OJ L 53, 23.2.2002, p. 7–8 

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could be used in other regions not yet linked to the VIS. For this reason, the implementation 
framework is set for the 1 May 2009, notwithstanding that the stocks of visa stickers can be 
used  up  in  regions  not  yet  linked  to  the  VIS.  After  the  adoption  of  this  Regulation,  the 
Commission will proceed as soon as possible with the establishment of the required technical 
specifications so that the decision can be taken in due time. The technical specifications will 
adapt the uniform format as required by placing the country code in a space directly under the 
national visa number (see annex). 

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2008/0074 (CNS) 

Proposal for a 

COUNCIL REGULATION 

amending Regulation (EC) No 1683/95 laying down a uniform format for visas as 
regards the numbering of visas 

THE COUNCIL OF THE EUROPEAN UNION, 

Having regard to the Treaty establishing the European Community, and in particular Article 
62 (2) (b) (iii) thereof, 
Having regard to the proposal from the Commission5, 
Having regard to the opinion of the European Parliament6, 

Whereas: 

(1) 

(2) 

(3) 

(4) 

(5) 

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The current legal framework provided for in Regulation (EC) No 1683/95 of 29 May 
1995  laying  down  a  uniform  format  for  visas7  and  the  additional  technical 
specifications,  adopted  by  the  Commission  on  07.02.1996  and  27.12.20008  do  not 
allow  for  reliable  searches  in  the  Visa  Information  System  established  under 
Regulation (EC) No [ ] of the European Parliament and the Council of [ ] on the Visa 
Information System (VIS) and the exchange of data between Member States on short 
stay visas (VIS Regulation)9. 

The numbering system in use does not allow in particular for sufficient characters to 
be indicated on the visas issued by Member States with large numbers of applications  

A  consistent  and  unique  visa  sticker  numbering  system  is  therefore  essential  for  the 
verification in the VIS. 

Regulation (EC) No 1683/95 should be amended accordingly. 

As  regards  Iceland  and  Norway,  this  Regulation  constitutes  a  development  of 
provisions of the Schengen acquis within the meaning of the Agreement concluded by 
the Council of the European Union and the Republic of Iceland and the Kingdom of 
Norway  concerning  the  latters'  association  with  the  implementation,  application  and 
development of the Schengen acquis10 which fall within the area referred to in Article 
1,  point  B  of  Council  Decision  1999/437/EC  on  certain  arrangements  for  the 
application of that Agreement11. 

OJ C […], […], p. […]. 
OJ C […], […], p. […]. 
OJ L 164, 14.07.1995, p. 1-4; Regulation as last amended by Regulation (EC) No 334/2002 (OJ L 53, 
23.2.2002, p.7 
Decision 2/96 of 07.02.1996 and Decision COM(2000) 4332 of 27.12.2000, unpublished 
OJ L (not yet formally adopted) 
OJ L 176, 10.7.1999, p. 36. 
OJ L 176, 10.7.1999, p. 31 

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(6) 

As regards Switzerland, this Regulation constitutes a development of provisions of the 
Schengen acquis within the meaning of the Agreement signed between the European 
Union,  the  European  Community  and  the  Swiss  Confederation  concerning  the 
association  of  the  Swiss  Confederation  with  the  implementation,  application  and 
development of the Schengen acquis, which fall within the area referred to in Article 
1, point A of Decision 1999/437/EC read in conjunction with Article 4(1) of Council 
Decisions 2004/849/EC12 and 2004/860/EC13. 

HAS ADOPTED THIS REGULATION: 

Regulation (EC) No 1683/95 is hereby amended as follows: 

1) In Article 2 the following paragraph 3 is added: 

Article 1 

“3. In accordance with the procedure referred to in Article 6 (2), it may be decided that the 
specifications referred to in Article 2 shall be secret and not be  published. In that case they 
shall be made available only to the bodies designated by the Member States as responsible for 
the printing and to persons duly authorised by a Member State or the Commission. ” 

2) In Article 3 paragraph 1 is deleted. 

3) The Annex is replaced by the Annex to this Regulation. 

Article 2 

This Regulation shall enter into force on the twentieth day following that of its publication in 
the Official Journal of the European Union. 

Member States shall apply this Regulation at the latest on 1 May 2009. Member States may 
use  up  their  remaining  stocks  in  consular  offices  not  connected  to  the  Visa  Information 
System (VIS).  

This Regulation shall be binding in its entirety and directly applicable in all Member States. 

Done at Brussels,  

For the Council 
The President 

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OJ L 368, 15.12.2004, p. 26-27 
OJ L 370, 17.12.2004, p.78-79 

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The following model is to be inserted: 

ANNEX  

1. 

2. 

3. 

4. 

5. 

Security features 

An integrated photograph produced to high security standards. 

An  optically  variable  mark  ('kinegram'  or  equivalent)  shall  appear  in  this  space. 
Depending on the angle of view, 12 stars, the letter 'E' and a globe become visible in 
various sizes and colors. 

The  logo  consisting  of  a  letter  or  letters  indicating  the  issuing  Member  State  (or 
'BNL'  in  the  case  of  the  Benelux  countries,  namely  Belgium,  Luxembourg  and  the 
Netherlands)  with  a  latent  image  effect  shall  appear  in  this  space.  This  logo  shall 
appear light when held flat and dark when turned by 90°. The following logos shall 
be used: A for Austria, BG for Bulgaria, BNL for Benelux, CY for Cyprus, CZE for 
the Czech Republic, D for Germany, DK for Denmark, E for Spain, EST for Estonia, 
F  for  France,  FIN  for  Finland,  GR  for  Greece,  H  for  Hungary,  I  for  Italy,  IRL  for 
Ireland,  LT  for  Lithuania,  LVA  for  Latvia,  M  for  Malta,  P  for  Portugal,  PL  for 
Poland, ROU for Romania, S for Sweden, SK for Slovakia, SVN for Slovenia, UK 
for the United Kingdom. 

The word 'visa' in capital letters shall appear in the middle of this space in optically 
variable coloring. Depending on the angle of view, it shall appear green or red. 

This box shall contain the 9 digit national number of the visa sticker, which shall be 
pre-printed. A special type shall be used.  

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5a. 

This  box  shall  contain  the  three-letter  country  code  as  set  out  in  ICAO  Document 
9303  on  Machine  Readable  Travel  Documents14,  indicating  the  issuing  Member 
State. 

The "number of the visa sticker" is the three-letter country code as set out in box 5a 
and the national number as referred to in box 5. 

6. 

7. 

8. 

9. 

10. 

11. 

12. 

13. 

Sections to be completed 

This  box  shall  begin  with  the  words  'valid  for'.  The  issuing  authority  shall  indicate 
the territory or territories for which the visa is valid. 

This  box  shall  begin  with  the  word  'from'  and  the  word  'until'  shall  appear  further 
along the line. The issuing authority shall indicate here the period of validity of the 
visa. 

This box shall begin with the words 'type of visa'. The issuing authority shall indicate 
the category of visa in conformity with Articles 5 and 7 of this Regulation. Further 
along  the  line  the  words  'number  of  entries',  'duration  of  stay'  (i.e.  duration  of 
applicants' intended stay) and again 'days' shall appear. 

This box shall begin with the words 'issued in' and shall be used to indicate the place 
of issue. 

This box shall begin with the word 'on' (after which the date of issue shall be filled in 
by  the  issuing  authority)  and  further  along  the  line  the  words  'number  of  passport' 
shall appear (after which the holder's passport number shall appear). 

This box shall begin with the words 'Surname, Name'. 

This box shall begin with the word 'remarks'. It shall be used by the issuing authority 
to  indicate  any  further  information  which  is  considered  necessary,  provided  that  it 
complies with Article 4 of this Regulation. The following two and a half lines shall 
be left empty for such remarks. 

This  box  shall  contain  the  relevant  machine-readable  information  to  facilitate 
external border controls. The machine-readable area shall contain a printed text in the 
background  printing,  indicating  the  Member  State  issuing  the  document.  This  text 
shall not affect the technical features of the machine readable area or its ability to be 
read. 

The paper shall have a natural colouring with red and blue markings 

The  words  designating  the  boxes  shall  appear  in  English  and  French.  The  issuing 
State may add a third official Community language. However, the word 'visa' in the 
top line may appear in any one official language of the Community. 

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Exception  for  Germany:  ICAO  document  9303  on  machine  readable  travel  documents  provides  for 
Germany the country code "D". 

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