Proposal for a COUNCIL RECOMMENDATION amending Council Recommendation (EU) 2020/1475 of 13 October 2020 on a coordinated approach to the restriction of free movement in response to the COVID-19 pandemic
Date: 2021-05-31
Institutions: Directorate-General for Justice and Consumers, European Commission
Subjects: border control, coronavirus disease, disease prevention, epidemic, free movement of persons, free movement of workers, health certificate, internal border of the EU, public health, traveller

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   EUROPEAN COMMISSION  Brussels, 31.5.2021  COM(2021) 294 final 2021/0138 (NLE)  Proposal for a COUNCIL RECOMMENDATION amending Council Recommendation (EU) 2020/1475 of 13 October 2020 on a coordinated approach to the restriction of free movement in response to the COVID-19 pandemic (Text with EEA relevance)  
 
EXPLANATORY MEMORANDUM 

1. 

• 

CONTEXT OF THE PROPOSAL 

Reasons for and objectives of the proposal 

To  ensure  a  well-coordinated,  predictable  and  transparent  approach  to  the  adoption  of 
restrictions  on  freedom  of  movement,  the  Council  adopted,  on  13  October  2020,  Council 
Recommendation  (EU)  2020/1475  on  a  coordinated  approach  to  the  restriction  of  free 
movement  in  response  to  the  COVID-19  pandemic1.  The  Council  Recommendation 
established a coordinated approach on the following key points:  the application of  common 
criteria  and  thresholds  when  deciding  whether  to  introduce  restrictions  to  free  movement,  a 
mapping  of  the  risk  of  COVID-19  transmission,  published  by  the  European  Centre  for 
Disease Prevention and Control (ECDC)2, based on an agreed colour code, and a coordinated 
approach as to the measures, if any, which may appropriately be applied to persons moving 
between areas, depending on the level of risk of transmission in those areas. 

Recommendation  (EU)  2020/1475  seeks  to  ensure  increased  coordination  among  Member 
States considering the adoption of measures restricting free movement on grounds of public 
health  in  the  context  of  the  pandemic.  When  adopting  and  applying  restrictions  to  free 
movement,  Member  States  should  respect  EU  law,  in  particular  the  principles  of 
proportionality and non-discrimination. Recommendation (EU) 2020/1475 was later amended 
in view of a very high level of community transmission across the EU, possibly linked to the 
increased transmissibility of new SARS-CoV-2 variants of concern3. 

After  another  peak  of  infections  in  early  April,  infection  numbers  have  recently  been 
decreasing across the EU. By the end of week 19 (16 May 2021), the 14-day cumulative case 
notification  rate  for  the  EU/EEA  had  fallen  to  224  per  100  000  population,  and  had  been 
decreasing for six weeks4. This  decrease is  despite a continuous increase in  the testing rate. 
Similar decreases can be observed for hospital and intensive care unit occupancy by and new 
admissions of COVID-19 patients.  

This improvement of the epidemiological situation is predominantly linked to an accelerating 
EU  vaccination  campaign.  By  27  May  2021,  the  cumulative  uptake  of  at  least  one  vaccine 
dose  among  adults  aged  18  years  and  above  in  the  EU/EEA  had  reached  42.8%,  and  the 
cumulative  uptake  of  full  vaccination  among  adults  aged  18  years  and  above  had  reached 
18.9%. Importantly, the cumulative uptake of full vaccination had reached high levels among 
target  groups,  such  as  persons  aged  80  years  and  above  (63.5%)  and  healthcare  workers 
(64.2%)5.  By  the  end  of  May  2021,  over  300  million  doses  of  vaccines  will  have  been 
delivered  to  Member  States.  Enough  doses  will  be  delivered  to  vaccinate  70%  of  the  adult 
population in the EU by the end of July 2021. 

1 
2 

3 

4 
5 

OJ L 337, 14.10.2020, p. 3. 
https://www.ecdc.europa.eu/en/covid-19/situation-updates/weekly-maps-coordinated-restriction-free-
movement  
Council  Recommendation  (EU)  2021/119  of  1  February  2021  amending  Recommendation  (EU) 
2020/1475 on a coordinated approach to the restriction of free movement in response to the COVID-19 
pandemic (OJ L 36I, 2.2.2021, p. 1). 
https://covid19-surveillance-report.ecdc.europa.eu/archive-COVID19-reports/index.html  
https://vaccinetracker.ecdc.europa.eu/public/extensions/COVID-19/vaccine-tracker.html#uptake-tab  

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In  view  of  these  welcome  developments,  Member  States  have  started  to  gradually  lift 
restrictions  imposed  to  limit  the  spread  of  SARS-CoV-2,  as  regards  both  travel  and  other 
activities.  To  do  so  in  a  safe  way,  many  Member  States  are  making  use  of  COVID-19 
certificates, covering vaccination, test results and/or recovery.  

On 20 May 2021, the European Parliament and the Council reached political agreement on the 
EU Digital COVID Certificate, a framework for the issuance, verification and acceptance of 
interoperable  COVID-19  vaccination,  test  and  recovery  certificates  for  the  purpose  of 
facilitating  the  holders’  exercise  of  their  right  to  free  movement  during  the  COVID-19 
pandemic6. The political agreement on the two Regulations proposed by the Commission7 was 
later  confirmed  by  Council’s  Permanent  Representatives  Committee8  and  the  Parliament’s 
Committee on Civil Liberties, Justice and Home Affairs9. The EU Digital COVID Certificate, 
which will allow all persons living in the EU to obtain an interoperable COVID-19 certificate, 
aims  to  contribute  to  facilitating  the  gradual  and  coordinated  lifting  of  restrictions  to  free 
movement put in place, in accordance with EU law, to limit the spread of SARS-CoV-2. 

It  is  important  that  efforts  are  made  to  ensure  a  smooth  rollout  of  the  EU  Digital  COVID 
Certificate. For this purpose, the Commission recommends Member States to make use, to the 
maximum  extent  possible,  of  existing  possibilities  under  national  law  to  start  issuing  EU 
Digital  COVID Certificate already before the entry into application of the Regulation  based 
on  the  technical  specifications  developed  by  the  Member  States  in  the  eHealth  Network10. 
Where national law provides for the verification of COVID-19 certificates, holders of an EU 
Digital COVID Certificate could make use of them when travelling already before the entry 
into  application  of  the  Regulation.  The  Commission  supports  this  process  by  launching  the 
central  part  of  the  EU  Digital  COVID  Certificate,  the  EU  gateway  storing  the  public  keys 
needed for the verification of an EU Digital COVID Certificate. Given that no personal data is 
exchanged via the EU gateway, Member States could already make use of its functionality. 

In view of the improving epidemiological situation, as well as the upcoming rollout of the EU 
Digital  COVID  Certificate,  Recommendation  (EU)  2020/1475  should  be  amended  to 
coordinate  this  gradual  lifting  of  free  movement  restrictions.  On  the  one  hand,  holders  of 
vaccination  and  recovery  certificates  travelling  within  the  EU  should  in  principle  not  be 
subject to additional restrictions, such as travel-related testing for SARS-CoV-2 infection or 
travel-related self-isolation or quarantine. On the other hand, the provisions on persons in the 
possession of a negative test result should be streamlined to limit complexity and confusion 
for  travellers,  thus  boosting  compliance  with  the  measures  imposed.  For  this  purpose,  the 
different  measures  that  could  be  applied  to  travellers  could  be  linked  more  closely  with  the 

6 
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10 

https://ec.europa.eu/commission/presscorner/detail/en/ip_21_2593  
Proposal  for  a  Regulation  of  the  European  Parliament  and  of  the  Council  on  a  framework  for  the 
issuance, verification and acceptance of interoperable certificates on vaccination, testing and recovery 
to  facilitate  free  movement  during  the  COVID-19  pandemic  (Digital  Green  Certificate)  (COM(2021) 
130 final) and Proposal for a Regulation of the European Parliament and of the Council on a framework 
for  the  issuance,  verification  and  acceptance  of  interoperable  certificates  on  vaccination,  testing  and 
recovery to third-country nationals legally staying or legally residing in the territories of Member States 
during the COVID-19 pandemic (Digital Green Certificate) (COM(2021) 140 final). 
https://www.consilium.europa.eu/en/press/press-releases/2021/05/21/covid-19-coreper-endorses-
political-agreement-on-the-eu-digital-covid-certificate-to-facilitate-free-movement/  
https://www.europarl.europa.eu/news/en/press-room/20210523IPR04606/civil-liberties-committee-
endorses-eu-digital-covid-certificate  
Available at: https://ec.europa.eu/health/ehealth/covid-19_en  

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colour  code  of  the  place  of  departure.  In  particular,  a  standard  validity  period  for  tests  for 
SARS-CoV-2 infection could simplify travel within the EU. 

In addition, Recommendation 2020/1475 should be adapted to take into account the adoption 
of  Council  Recommendation  (EU)  2021/816  amending  Recommendation  (EU)  2020/912  on 
the temporary restriction on non-essential travel into the EU and the possible lifting of such 
restriction11,  including  the  increase  of  the  threshold  for  the  14-day  cumulative  COVID-19 
case notification rate from 25 to 75. 

At the same time, it is necessary to remain vigilant regarding SARS-CoV-2 variants. ECDC 
regularly  assesses  new  evidence  on  variants  detected  through  epidemic  intelligence,  rules-
based  genomic  variant  screening,  or  other  scientific  sources12.  This  covers,  in  particular, 
‘variants of concern’, for which clear evidence is available indicating a significant impact on 
transmissibility,  severity  and/or  immunity  that  is  likely  to  have  an  impact  on  the 
epidemiological  situation  in  the  EU/EEA.  It  also  covers  ‘variants  of  interest’,  for  which 
evidence  is  available  on  genomic  properties,  epidemiological  evidence  or  in-vitro  evidence 
that  could  imply  a  significant  impact  on  transmissibility,  severity  and/or  immunity, 
realistically having an impact on the epidemiological situation in the EU/EEA. 

ECDC makes available a ‘SARS-CoV-2 variants dashboard’13 to provide an overview of the 
proportion  of  variants  of  concern  and  variants  of  interest  in  the  EU/EEA,  together  with 
sequencing volumes. This information should be taken into account by Member States when 
considering the introduction of restrictions to free movement. To obtain timely and accurate 
information on the emergence and circulation of SARS-CoV-2 variants of concern or interest, 
it  is  important  that  Member  State  meet  ECDC’s  recommendations  regarding  sequencing 
volumes, which should meet a level of 10% or 500 sequences of SARS-CoV-2-positive cases 
sequenced, in line with the Communication from the Commission to the European Parliament, 
the European Council and the Council on a united front to beat COVID-1914. 

As provided in the rules on the EU Digital COVID Certificate, Member States should be able 
to re-introduce restrictions on certificate holders, including holders of vaccination or recovery 
certificates,  because,  for  example,  the  epidemiological  situation  in  a  Member  State  or  in  a 
region  within  a  Member  State  deteriorates  rapidly.  This  ‘emergency  brake’  is  intended,  in 
particular, to prevent the spread of SARS-CoV-2 variants of concern or interest. 

• 

Consistency with existing policy provisions in the policy area 

This recommendation serves to facilitate the implementation of existing provisions related to 
restrictions of the freedom of movement on grounds of public health. In particular, it intends 
to facilitate the implementation of the EU Digital COVID Certificate. 

• 

Consistency with other Union policies 

This  recommendation  is  in  line  with  other  Union  policies,  including  those  regarding  public 
health and the absence of internal border controls. 

11 
12 
13 
14 

OJ L 182, 21.5.2021, p. 1. 
https://www.ecdc.europa.eu/en/covid-19/variants-concern  
https://www.ecdc.europa.eu/en/covid-19/situation-updates/variants-dashboard  
COM(2021) 35 final. 

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2. 

• 

LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY 

Legal basis 

The  Treaty  on  the  Functioning  of  the  European  Union  (TFEU),  and  in  particular  Articles 
21(2), 168(6) and 292. 

• 

Subsidiarity (for non-exclusive competence)  

Article  292  TFEU  enables  the  Council  to  adopt  recommendations.  According  to  this 
provision,  the  Council  shall  act  on  a  proposal  from  the  Commission  in  all  cases  where  the 
Treaties provide that it shall adopt acts on a proposal from the Commission.  

This  applies  in  the  current  situation,  as  a  consistent  approach  is  necessary  to  avoid  further 
disruptions  caused  by  unilateral  and  not  sufficiently  coordinated  measures  restricting  free 
movement  within  the  Union.  Article  21(1)  TFEU  stipulates  that  every  citizen  of  the  Union 
shall  have  the  right  to  move  and  reside  freely  within  the  territory  of  the  Member  States, 
subject  to  the  limitations  and  conditions  laid  down  in  the  Treaties  and  by  the  measures 
adopted  to  give  effect  to  them.  If  action  by  the  Union  should  prove  necessary  to  attain  this 
objective,  the  European  Parliament  and  the  Council,  acting  in  accordance  with  the  ordinary 
legislative  procedure,  may  adopt  provisions  with  a  view  to  facilitating  the  exercise  of  these 
rights. 

Pursuant to Article 168(6), the Council, on a proposal from the Commission, may also adopt 
recommendations for the purposes of ensuring a high level of human health protection in the 
definition and implementation of all Union policies and activities. 

• 

Proportionality 

The adoption of unilateral or uncoordinated measures is likely to lead to restrictions on free 
movement  that  are  inconsistent  and  fragmented,  resulting  in  uncertainty  for  Union  citizens 
when  exercising  their  EU  rights.  The  proposal  does  not  go  beyond  what  is  necessary  and 
proportionate for achieving the intended objective. 

RESULTS 
CONSULTATIONS AND IMPACT ASSESSMENTS 

EX-POST 

EVALUATIONS, 

OF 

STAKEHOLDER 

Ex-post evaluations/fitness checks of existing legislation 

3. 

• 

n.a. 

• 

Stakeholder consultations 

The proposal takes into account the discussions held at regular intervals with Member States 
since  the  first  temporary  restrictions  were  implemented,  the  information  available  on  the 
evolving epidemiological situation and relevant available scientific evidence. 

Impact assessment 

• 

n.a. 

• 

Fundamental rights 

Freedom  of  movement  is  a  fundamental  right  enshrined  in  Article  45  of  the  Charter  of 
Fundamental  Rights  of  the  European  Union.  Subject  to  the  principle  of  proportionality, 
limitations may be made only if they are necessary and genuinely meet objectives of general 

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interest  recognised  by  the  Union  or  the  need  to  protect  the  rights  and  freedom  of  others.  
Article  21  of  the  Charter  prohibits  restriction  on  ground  of  nationality  within  the  scope  of 
application of the Treaties.  

Any limitations to the freedom of movement within the Union justified on grounds of public 
health  must  be  necessary,  proportionate  and  based  on  objective  and  non-discriminatory 
criteria. They must be suitable for securing the attainment of the objective that they pursue; 
and not go beyond what is necessary in order to attain that objective. 

4. 

BUDGETARY IMPLICATIONS 

None.

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2021/0138 (NLE) 

Proposal for a 

COUNCIL RECOMMENDATION 

amending Council Recommendation (EU) 2020/1475 of 13 October 2020 on a 
coordinated approach to the restriction of free movement in response to the COVID-19 
pandemic 

(Text with EEA relevance) 

THE COUNCIL OF THE EUROPEAN UNION, 

Having  regard  to  the  Treaty  on  the  Functioning  of  the  European  Union,  and  in  particular 
Article 21(2), Article 168(6) and Article 292, first and second sentence thereof, 

Having regard to the proposal from the European Commission, 

Whereas: 

(1) 

(2) 

(3) 

(4) 

1 
2 

3 

On 13 October 2020, the Council adopted Council Recommendation (EU) 2020/1475 
on  a  coordinated  approach  to  the  restriction  of  free  movement  in  response  to  the 
COVID-19  pandemic1.  Recommendation  (EU)  2020/1475  established  a  coordinated 
approach  on  the  following  key  points:  the  application  of  common  criteria  and 
thresholds  when  deciding  whether  to  introduce  restrictions  to  free  movement,  a 
mapping of the risk of COVID-19 transmission based on an agreed colour code, and a 
coordinated approach as to the measures, if any, which may appropriately be applied 
to  persons  moving  between  areas,  depending  on  the  level  of  risk  of  transmission  in 
those areas. 

Using the criteria and thresholds established in Recommendation (EU) 2020/1475, the 
European  Centre  for  Disease  Prevention  and  Control  has  been  publishing,  once  a 
week, a map of Member States, broken down by regions, in order to support Member 
States’ decision-making2. 

As provided for in  recital  15 of Recommendation (EU) 2020/1475,  the Commission, 
supported by European Centre for Disease Prevention and Control, should, in view of 
the  evolving  epidemiological  situation,  regularly  assess  the  criteria,  data  needs  and 
thresholds  outlined  in  this  Recommendation,  including  whether  other  criteria  should 
be considered or the thresholds adapted, and transmit its findings to the Council for its 
consideration, together with a proposal to amend the Recommendation. 

Following such a proposal from the Commission, the Council adopted, on 1 February 
2021,  Council  Recommendation  (EU)  2021/119  amending  Recommendation  (EU) 
2020/1475 on a coordinated approach to the restriction of free movement in response 
to the COVID-19 pandemic3 in view of a very high level of community transmission 

OJ L 337, 14.10.2020, p. 3. 
Available 
at: 
restriction-free-movement  
OJ L 36I, 2.2.2021, p. 1. 

https://www.ecdc.europa.eu/en/covid-19/situation-updates/weekly-maps-coordinated-

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across the Union, possibly linked to the increased transmissibility of the new SARS-
CoV-2 variants of concern. 

(5)  Member States may, in accordance with Union law, limit the fundamental right of free 
movement  on  grounds  of  public  health.  Any  restrictions  to  the  free  movement  of 
persons  within  the  Union  that  are  put  in  place  to  limit  the  spread  of  SARS-CoV-2 
should be based on specific and limited public interest grounds, namely the protection 
of public health. It is necessary for such limitations to be applied in accordance with 
the  general  principles  of  Union  law,  in  particular  proportionality  and  non‐
discrimination.  Any measures  taken should therefore be strictly limited in scope  and 
time,  in  line  with  the  efforts  to  restore  free  movement  within  the  Union, and  should 
not extend beyond what is strictly necessary to safeguard public health. Furthermore, 
such  measures  should  be  consistent  with  measures  taken  by  the  Union  to  ensure  the 
seamless  free  movement  of  goods  and  essential  services  across  the  internal  market, 
including the free movement of medical supplies and medical and healthcare personnel 
through 
the  Commission 
communication of 23 March 2020 on the implementation of the Green Lanes under the 
Guidelines  for  border  management  measures  to  protect  health  and  ensure  the 
availability of goods and essential services4. 

lane”  border  crossings  referred 

the  “green 

to 

in 

(6) 

(7) 

To facilitate the exercise of the right to move and reside freely within the territory of 
the Member States, the European Parliament and the Council have agreed, on 20 May 
2021,  to  establish  the  EU  Digital  COVID  Certificate,  a  common  framework  for  the 
issuance,  verification  and  acceptance  of  interoperable  certificates  for  COVID-19 
vaccination,  testing  and  recovery.  The  EU  Digital  COVID  Certificate  should 
contribute  to  facilitating  the  gradual  and  coordinated  lifting  of  restrictions  to  free 
movement put in place, in accordance with Union law, to limit the spread of SARS-
CoV-2. Facilitating freedom of movement is one of the key preconditions for starting 
an economic recovery.  

On  20  May  2021,  the  Council  adopted  Council  Recommendation  (EU)  2021/816 
amending  Recommendation  (EU)  2020/912  on  the  temporary  restriction  on  non-
essential travel into the EU and the possible lifting of such restriction5, recommending 
that Member States ease the restrictions on non-essential travel to the EU, in particular 
for  those  third-country  nationals  who  have  received  the  last  recommended  dose  of  a 
COVID-19  vaccine  that  has  been  granted  a  marketing  authorisation  pursuant  to 
Regulation  (EC)  No  726/2004  of  the  European  Parliament  and  of  the  Council6.  In 
addition, Member States have the possibility to allow non-essential travel to the EU of 
third-country nationals who have received the last recommended dose of a COVID-19 
listing  process7. 
vaccine 
Recommendation  (EU)  2021/816  also  increased  the  thresholds  for  the  14-day 
cumulative  COVID-19  case  notification  rate  used  to  determine  the  list  of  non-EU 
countries  from  where  non-essential  travel  should  be  permitted.  At  the  same  time,  to 
limit  the  risk  of  SARS-CoV-2  variants  of  concern  or  interest  entering  the  EU, 

the  WHO  emergency  use 

that  has  completed 

4 
5 
6 

7 

OJ C 96I, 24.3.2020, p. 1. 
OJ L 182, 21.5.2021, p. 1 
Regulation (EC) No 726/2004 of the European Parliament and of the Council of 31 March 2004 laying 
down Community procedures for the authorisation and supervision of medicinal products for human 
and veterinary use and establishing a European Medicines Agency (OJ L 136, 30.4.2004, p. 1). 
https://extranet.who.int/pqweb/key-resources/documents/status-covid-19-vaccines-within-who-eulpq-
evaluation-process  

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(8) 

(9) 

Recommendation  (EU)  2021/816  provides  for  an  ‘emergency  brake’  mechanism, 
allowing  Member  States  to  act  quickly  and  in  a  coordinated  manner  to  temporarily 
limit  to  a  strict  minimum  all  travel  from  affected  third  countries.  Recommendation 
2020/1475  should be adapted to  take into account  these developments,  including the 
change to the threshold for the case notification rate. 
In its conclusions of 25 May 20218, the European Council stated that efforts to ensure 
a  coordinated  approach  should  continue  ahead  of  the  summer.  In  that  context,  the 
European  Council  welcomed  the  agreement  reached  on  the  EU  Digital  COVID 
Certificate  and  called  for  its  rapid  implementation.  As  a  next  step,  with  a  view  to 
facilitating free movement in the EU, the European Council called for the revision by 
mid-June of Recommendation (EU) 2020/1475. The European Council also welcomed 
the adoption of Recommendation (EU) 2021/816. 

The [EU Digital COVID Certificate Regulation] will start applying as of 1 July 2021. 
As of this date, vaccinated, tested or recovered persons will have a right to  obtain an 
EU Digital  COVID  certificate, including when they have been vaccinated before the 
date of application of the [EU Digital COVID Certificate Regulation], even if as part 
of  a  clinical  trial.  Recommendation  2020/1475  should  therefore  be  adapted  to  make 
best  use  of  the  EU  Digital  COVID  Certificate  framework.  In  particular,  EU  Digital 
COVID Certificates ensure safe issuance, verification and acceptance of interoperable 
vaccination, test and recovery certificates, and certificates issued in line with the [EU 
Digital COVID Certificate Regulation] should thus be the primary tool to be used in 
the context of travel within the EU.  

(10)  The  [EU  Digital  COVID  Certificate  Regulation]  provides  for  a  phasing-in  period  of 
six weeks, to give Member States which are unable to issue certificates in a format that 
complies with  this  Regulation  from  its date of application the possibility to  continue 
issuing  certificates  which  are  not  yet  in  compliance  with  the  [EU  Digital  COVID 
Certificate  Regulation].  During  the  phasing-in  period,  such  certificates,  as  well  as 
certificates issued before the date of application of the [EU Digital COVID Certificate 
Regulation],  are  to  be  accepted  by  all  Member  States  provided  that  they  contain  the 
necessary  data.  For  the  purposes  of  Recommendation  2020/1475,  such  certificates 
should  thus  also  be  considered  as  issued  in  line  with  the  [EU  Digital  COVID 
Certificate Regulation]. 

(11) 

In  addition,  persons  not  in  the  possession  of  an  EU  Digital  COVID  Certificate,  in 
particular because they have been vaccinated before the date of application of the [EU 
Digital COVID Certificate Regulation], should be given every reasonable opportunity 
to  prove  by  other  means  that  they  should  benefit  from  the  waiving  of  relevant 
restrictions  to  free  movement  afforded  by  a  Member  State  to  holders  of  such 
certificates. 

(12)  Efforts  should  be  made  to  ensure  a  smooth  rollout  of  the  EU  Digital  COVID 
Certificate. For this purpose, Member States should make use, to the maximum extent 
possible, of existing possibilities under national law regarding the issuance of COVID-
19  certificates  to  start  issuing  certificates  in  a  format  that  is  consistent  with  the  [EU 
Digital COVID Certificate Regulation] already before its entry into application, based 
on  the  technical  specifications  developed  by  the  Member  States  in  the  eHealth 
Network9. Where national law provides for the verification of COVID-19 certificates, 

8 
9 

EUCO 5/21. 
Available at: https://ec.europa.eu/health/ehealth/covid-19_en  

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holders  of  an  EU  Digital  COVID  Certificate  could  already  make  use  of  them  when 
travelling. The Commission supports this process by launching the central part of the 
EU Digital COVID Certificate, the EU gateway storing the public keys needed for the 
verification  of  an  EU  Digital  COVID  Certificate.  Given  that  no  personal  data  is 
exchanged  via  the  EU  gateway,  Member  States  could  make  use  of  its  functionality 
already in advance of the entry into application of the [EU Digital COVID Certificate 
Regulation]. 

(13)  Predominantly linked to significant increases in vaccination uptake across the Union, 
there is a strong and continuous downward trend in the 14-day cumulative COVID-19 
case notification rate in the EU/EEA area. The cumulative uptake as of 27 May 2021 
of at least one vaccine dose among adults aged 18 years and above has reached 42.8%, 
and the cumulative uptake of full vaccination among adults aged 18 years and above 
has reached 18.9%. Importantly, the cumulative uptake of full vaccination has reached 
high  levels  among  priority  groups  such  as  persons  aged  80  years  and  above  and 
healthcare workers10. When considering whether to apply restrictions, Member States 
should  take  into  account  the  level  of  protection  provided  by  the  increases  in 
vaccination uptake, notably among target groups. 

(14) 

In view of these positive developments,  Member States have started to  gradually lift 
restrictions  imposed  to  limit  the  spread  of  SARS-CoV-2,  as  regards  both  travel  and 
other  activities.  To  do  so  in  a  safe  way,  many  Member  States  are  making  use  of 
COVID-19  certificates,  covering  vaccination,  test  results  and/or  recovery.  To 
coordinate the efforts towards a gradual lifting of restrictions to free movement put in 
place,  in  accordance  with  Union  law,  to  limit  the  spread  of  SARS-CoV-2, 
Recommendation  (EU)  2020/1475  should  be  adapted.  Taking  into  account  the 
differences  in  the  epidemiological  situation  between  the  areas  classified  in  the 
different  colours  established  by  Recommendation  (EU)  2020/1475,  and  to  provide 
more clarity and certainty to persons travelling within the Union, the restrictions that 
could  be  applied  by  Member  States,  based  their  own  decision-making  processes, 
should be further clarified. 

(15) 

In view of the low infection rates in areas classified as ‘orange’, no quarantine or self-
isolation  should  be  imposed  on  persons  travelling  from  such  areas.  Member  States 
could, however, require such travellers to undergo a test for SARS-CoV-2 infection, or 
offer tests upon arrival.  

(16)  To simplify travel within the Union, standard validity periods for tests for SARS-CoV-
2 infection should be established, also taking into account the upcoming rollout of the 
interoperable  EU  Digital  COVID  Certificate.  Most  Member  States  already  provide 
that  the  sampling  required  for  a  molecular  nucleic  acid  amplification  test  (NAAT) 
must, in order to be eligible, be carried out not more than 72 hours prior to arrival. A 
shorter  validity  period  of  not  more  than  48  hours  is  justified  for  rapid  antigen  tests 
listed in Annex I of the common list of COVID-19 rapid antigen tests agreed by the 
Health Security Committee11, where such tests are accepted by a Member State for the 
purposes  of  travel.  In  both  cases,  the  tests  should  have  been  carried  out  by  health 
professionals or by skilled testing personnel. 

10 
11 

EN 

https://vaccinetracker.ecdc.europa.eu/public/extensions/COVID-19/vaccine-tracker.html#uptake-tab 
Available 
19_rat_common-list_en.pdf  

https://ec.europa.eu/health/sites/default/files/preparedness_response/docs/covid-

at: 

9 

  EN 

                                                 
(17)  As  noted  in  the  [EU  Digital  COVID  Certificate  Regulation],  Member  States  are 
encouraged to ensure affordable and widely available testing possibilities to facilitate 
the  exercise  of  the  right  to  free  movement,  taking  into  account  that  not  the  entire 
population has had the opportunity to be vaccinated yet. The use of rapid antigen tests 
would serve to facilitate the issuance of test result certificates on an affordable basis. 
The Commission has also declared that it would mobilise EUR 100 million to support 
Member States in providing affordable tests. 

(18)  Persons  travelling  from  areas  classified  as  ‘red’  could  still  be  required  to  undergo 
quarantine or self-isolation, unless they are in the possession of a test certificate falling 
within  the  standard  validity  periods.  Persons  not  in  the  possession  of  such  a  test 
certificate could be required to undergo a test for SARS-CoV-2 infection upon arrival 
and,  where  necessary,  to  quarantine  or  self-isolate  until  a  negative  test  result  is 
obtained. 

(19)  Mandatory  quarantine  or  self-isolation  imposed  on  persons  arriving  from  other 
Member  States  constitutes  a  significant  restriction  to  free  movement.  It  should  be 
imposed only where absolutely necessary to protect public health, for example because 
the person concerned arrives from an area classified as ‘red’ without a test for SARS-
CoV-2 infection, because the person concerned arrives from an area classified as ‘dark 
red’, or where a high prevalence of SARS-CoV-2 variants of concern or interest have 
been  reported.  Persons  undergoing  travel-related  quarantine  or  self-isolation  in  such 
situations should be able to shorten its duration if a negative test result is obtained five 
to seven days after arrival, unless the traveller develops symptoms of COVID-19. 

(20)  SARS-CoV-2 variants remain a cause for concern and should be taken into account by 
Member  States  in  the  context  of  restrictions  to  free  movement  in  response  to  the 
COVID-19  pandemic.  The  European  Centre  for  Disease  Prevention  and  Control 
regularly  assesses  new  evidence  on  variants  detected  through  epidemic  intelligence, 
rules-based  genomic  variant  screening,  or  other  scientific  sources12.  This  covers,  in 
particular,  variants  of  concern,  for  which  clear  evidence  is  available  indicating  a 
significant impact on transmissibility, severity and/or immunity that is likely to have 
an impact on the epidemiological situation in the EU/EEA, and variants of interest, for 
which  evidence  is  available  on  genomic  properties,  epidemiological  evidence  or  in-
vitro evidence that could imply a significant impact on transmissibility, severity and/or 
immunity,  realistically  having  an  impact  on  the  epidemiological  situation  in  the 
EU/EEA. To provide an overview of the proportion of variants of concern and variants 
of interest in the EU/EEA together with sequencing volumes, the European Centre for 
Disease  Prevention  and  Control  makes  available  a  ‘SARS-CoV-2  variants 
dashboard’13.  To  obtain  timely  and  accurate  information  on  the  emergence  and 
circulation  of  SARS-CoV-2  variants  of  concern  or  interest,  the  European  Centre  for 
Disease Prevention and Control recommends that Member States’ sequencing volumes 
should meet a recommended level of at least 10% or 500 sequences of SARS-CoV-2-
positive cases sequenced per week, as was also noted in the Communication from the 
Commission to the European Parliament, the European Council and the Council on a 
united  front  to  beat  COVID-1914.  Insufficient  sequencing  volume  results  in  poor 
ability  to  detect  circulating  variants  of  concern  before  they  have  an  impact  on  the 
overall epidemiological situation.  

12 
13 
14 

https://www.ecdc.europa.eu/en/covid-19/variants-concern  
https://www.ecdc.europa.eu/en/covid-19/situation-updates/variants-dashboard  
COM(2021) 35 final. 

EN 

10 

  EN 

                                                 
(21) 

It is thus appropriate to continue to strongly discourage all non-essential travel to and 
from areas classified as ‘dark red’, to and from areas with a high prevalence of SARS-
CoV-2 variants of concern or interest, especially variants that increase transmissibility, 
disease  severity  or  affect  vaccine  efficacy,  and  to  and  from  areas  with  an  unknown 
prevalence due to insufficient sequencing volume.  

(22)  Persons who are vaccinated and persons who have recovered from COVID-19 in the 
previous six months seem to have a reduced risk of infecting people with SARS-CoV-
2,  according  to  current  and  still  evolving  scientific  evidence.  The  free  movement  of 
persons who, according to sound scientific evidence, do not pose a significant risk to 
public  health,  for  example  because  they  are  immune  to  and  cannot  transmit  SARS-
CoV-2, should not be restricted, as such restrictions would not be necessary to achieve 
the objective of protecting public health. Where the epidemiological situation allows, 
such persons should not be subject to additional restrictions to free movement linked 
to the COVID-19 pandemic, such as travel-related testing for SARS-CoV-2 infection 
or  travel-related  self-isolation  or  quarantine,  unless  such  additional  restrictions  are, 
according  to  the  latest  available  scientific  evidence,  in  line  with  the  precautionary 
principle,  necessary  and  proportionate  for  the  purpose  of  safeguarding  public  health, 
and non-discriminatory. 

transmission  and 

(23)  Many  Member  States  already  exempt  or  are  planning  to  exempt  vaccinated  persons 
from restrictions to free movement within the Union, and the upcoming rollout of the 
interoperable EU Digital COVID Certificate will make it easier for travellers to prove 
that they have been vaccinated. According to interim guidance on the benefits of full 
implications  for  non-
vaccination  against  COVID-19  for 
pharmaceutical interventions published by the European Centre for Disease Prevention 
and Control on 21 April 202115, requirements for testing and quarantine of travellers, 
where  implemented,  can  be  waived  or  modified  for  fully  vaccinated  individuals  as 
long as there is no or very low level of circulation of variants of concern or interest in 
the  community  in  the  country  of  origin.  This  is  because  the  likelihood  that  a  fully 
vaccinated traveller will pose a risk for onward transmission of COVID-19 is assessed 
as very low, unless increased by factors such as high prevalence of variants of concern 
or interest. As a result, individuals who are fully vaccinated with a COVID-19 vaccine 
that  has  been  granted  a  marketing  authorisation  pursuant  to  Regulation  (EC)  No 
726/2004  should  not  be  subject  to  additional  travel-related  testing  for  SARS-CoV-2 
infection or travel-related self-isolation or quarantine when moving within the Union. 
At  the  same  time,  in  the  current  epidemiological  situation  in  the  EU/EEA,  in  public 
spaces  and 
travel,  non-pharmaceutical 
interventions  such  as  physical  distancing,  the  wearing  of  facemasks  and  hand  and 
respiratory hygiene should be maintained irrespective of the vaccination status of the 
individual.  

large  gatherings, 

including  during 

in 

(24)  To simplify travel within the Union, a common understanding of the conditions under 
which  vaccinated  persons  should  be  exempted  from  travel  restrictions  should  be 
established. Vaccinated persons should be exempted from restrictions once at least 14 
days have passed since full vaccination. Persons who have received the second dose in 
a  2-dose  COVID-19  vaccine  series  and  persons  who  have  received  a  single  dose 
vaccine should be considered as fully vaccinated. 

15 

Available  at:  https://www.ecdc.europa.eu/sites/default/files/documents/Interim-guidance-benefits-of-
full-vaccination-against-COVID-19-for-transmission-and-implications-for-non-pharmaceutical-
interventions.pdf  

EN 

11 

  EN 

                                                 
(25)  To achieve rapid vaccination rollout, some Member States have put in place policies to 
vaccinate as many people in the groups at high risk of severe COVID-19 as possible. 
Another  recommendation  is  that  only  one  dose  of  vaccine  (in  a  two-dose  schedule) 
should be given to individuals who have previously been infected with SARS-CoV-2. 
According to a report from the European Centre for Disease Prevention and Control of 
6 May 2021, nine out of 23 responding EU/EEA countries are recommending a single 
dose  for  those  previously  infected  (for  vaccines  that  have  a  two-dose  schedule)16. 
There  is  emerging  evidence  that  for  those  individuals  who  have  been  previously 
infected  with  SARS-CoV-2,  a  single  dose  of  Comirnaty  and  COVID-19  Vaccine 
Moderna  (mRNA  vaccines)  elicits  similar  or  higher  antibody,  B-cell  and  T-cell 
responses  when  compared  to  individuals  that  have  not  previously  been  infected.  In 
addition, some studies have reported that a single vaccine dose in previously infected 
individuals appears to generate similar antibody, B-cell and T-cell responses to those 
found in non-infected individuals who have received two vaccine doses. There is also 
emerging evidence of higher antibody levels after one dose of the Vaxzevria vaccine 
in  previously  infected  individuals  compared  to  one  dose  in  non-previously  infected 
individuals  and  a  single  dose  in  previously  infected  individuals  appears  to  generate 
similar  antibody  responses  to  those  found  in  non-infected  individuals  who  received 
two  doses  of  vaccine.  Without  prejudice  to  Member  States’  competence  to  set  their 
vaccination strategies, a person having received a single dose of a 2-dose COVID-19 
vaccine that has  been  granted a marketing authorisation  pursuant  to  Regulation  (EC) 
No 726/2004 after having previously been infected with SARS-CoV-2 should also be 
considered,  in  a  travel  context,  as  fully  vaccinated,  where  it  is  indicated  in  the 
vaccination  certificate  that  the  vaccination  course  has  been  completed  following  the 
administration of one dose.  

(26)  Member States could also lift restrictions in other settings. In accordance with the first 
sub-paragraph  of  Article  5(5)  of  [EU  Digital  COVID  Certificate  Regulation],  where 
Member  States  accept  proof  of  vaccination  in  order  to  waive  restrictions  to  free 
movement also in other situations, for example after the first dose in a 2-dose series, 
they  should  also  accept,  under  the  same  conditions,  vaccination  certificates  for  a 
COVID-19  vaccine  covered  by  the  first  sub-paragraph  of  Article  5(5)  of  that 
Regulation.  Member  States  should  also  be  able  to  accept,  for  the  same  purpose, 
vaccination  certificates  issued  for  a  COVID-19  vaccine  covered  by  the  second  sub-
paragraph of Article 5(5) of [EU Digital COVID Certificate Regulation]. 

(27)  Accumulating evidence supports recommending that people who have recovered from 
laboratory-confirmed  COVID-19  do  not  need  additional  travel-related  testing  for 
SARS-CoV-2 infection or travel-related self-isolation or quarantine at least within the 
first  180  days  of  the  first  positive  NAAT  test,  provided  that  non-pharmaceutical 
interventions  such  as  physical  distancing,  the  wearing  of  face  masks  and  hand  and 
respiratory hygiene are maintained. As a result, many Member States already exempt 
or are planning to exempt recovered persons from restrictions to free movement within 
the  Union,  and  the  upcoming  rollout  of  the  interoperable  EU  Digital  COVID 
Certificate will make it easier for travellers to prove that they have recovered after a 
positive NAAT test for SARS-CoV-2 infection. 

(28) 

In line with the precautionary approach, an ‘emergency brake’ mechanism should be 
established,  according  to  which  Member  States  should  again  require  holders  of 

16 

EN 

Available 
vaccination-strategies-and-vaccine-deployment 

at: 

https://www.ecdc.europa.eu/en/publications-data/overview-implementation-covid-19-

12 

  EN 

                                                 
vaccination certificates or certificates of recovery to undergo a test for SARS-CoV-2 
infection and/or quarantine/self-isolation if the epidemiological situation in a Member 
State  or  in  a  region  within  a  Member  State  deteriorates  rapidly,  resulting  in  a 
classification as ‘dark red’ pursuant to point 10, or if a high prevalence of SARS-CoV-
2  variants  of  concern  or  interest  that  increase  transmissibility  or  disease  severity  or 
affect  vaccine  efficacy  has  been  reported.  Article  11(2)  of  [EU  Digital  COVID 
Certificate Regulation] provides that in such situations, the Member State concerned is 
to  inform  the  Commission  and  the  other  Member  States  accordingly,  if  possible  48 
hours in advance of the introduction of such new restrictions. To ensure coordination, 
in  particular  where  restrictions  are  imposed  due  to  a  new  SARS-CoV-2  variants  of 
concern or interest, the Council, in close cooperation with the Commission, should, on 
the  basis  of  such  information,  be  tasked  to  review  the  situation  in  a  coordinated 
manner. 

(29)  To  ensure  unity  of  travelling  families,  minors  accompanying  their  parent  or  parents 
should  not  be  required  to  undergo  travel-related  quarantine/self-isolation  where  no 
such requirement is imposed on the parent or parents, for example because they are in 
the  possession  of  a  vaccination  certificate  or  a  certificate  of  recovery.  In  addition, 
children under the age of 6 years should be exempt from the requirement to undergo 
travel-related tests for SARS-CoV-2 infection. 

(30)  Contact tracing is a central pillar of the fight against the spread of the virus, especially 
in  connection  with  the  emergence  of  new  variants.  At  the  same  time,  effective  and 
timely  contact  tracing  is  more  challenging  when  it  needs  to  be  performed  across 
borders and for high volumes of passengers travelling close to each other. To address 
this, Member States should consider requiring persons entering their territory through 
collective transport modes with pre-assigned seat or cabin to submit Passenger Locator 
Forms (PLF) in accordance with data protection requirements, in particular when they 
are  tested  only  upon  arrival.  For  this  purpose,  a  common  Digital  Passenger  Locator 
Form17 has been developed by the EU Healthy Gateways for possible use by Member 
States.  Member  States  should  be  encouraged  to  join  the  PLF  Exchange  Platform, 
which  is  part  of  the  Early  Warning  and  Response  System,  to  enhance  their  cross-
border contact tracing capabilities for all transport modes. The PLF exchange platform 
will enable the secure, timely and effective exchange of data between the competent 
authorities of the Member States, by enabling them to transmit information from their 
existing  national  digital  PLF  systems  and  relevant  epidemiological  information  to 
other  competent  authorities  in  an  interoperable  and  automatic  manner.  For  this 
purpose,  the  Commission  adopted,  on  27  May  2021,  Commission  Implementing 
Decision amending Implementing Decision (EU) 2017/253 as regards alerts triggered 
by  serious  cross-border  threats  to  health  and  for  the  contact  tracing  of  passengers 
identified through Passenger Locator Forms18. 

(31)  Member  States  should  be  encouraged  to  publish  relevant  information  also  in  a 
machine-readable format in order to facilitate the processing by stakeholders, such as 
transport operators cross-border passenger transport services operators. 

(32) 

In  view  of  the  evolving  epidemiological  situation  and  further  progress  in  terms  of 
vaccination  uptake,  and  as  more  relevant  scientific  evidence  becomes  available, 
including  on  the  need  for  repeated  immunisation  to  provide  protection  against 

17 
18 

https://www.euplf.eu/en/home/index.html  
C(2021) 3921. 

EN 

13 

  EN 

                                                 
emerging  variants  or  the  need  to  receive  booster  doses  at  regular  intervals,  the 
Commission,  supported by the European Centre  for Disease Prevention and Control, 
should continue to regularly assess the criteria, data needs and thresholds outlined in 
this  Recommendation,  including  whether  other  criteria  should  be  considered  or  the 
thresholds  adapted,  and  transmit  its  findings  to  the  Council  for  its  consideration, 
together with a proposal to amend the Recommendation, where necessary, 

HAS ADOPTED THIS RECOMMENDATION: 

Council Recommendation (EU) 2020/1475 on a coordinated approach to the restriction of free 
movement in response to the COVID-19 pandemic is amended as follows: 

1. 

In point 8, letter (c) is replaced by the following: 

“(c)  the  ‘testing  rate’,  that  is,  the  number  of  tests  for  COVID-19  infection  per 
100 000 population carried out during the last week;”. 

2. 

In point 8, the following letter (d) is added: 

“(d) the prevalence of SARS-CoV-2 variants of concern or interest as reported by the 
European Centre for Disease Prevention and Control, taking into account sequencing 
volume and their level of transmission in the EU/EEA area.”. 

3. 

In point 10, letters (b) and (c) are replaced by the following: 

“(b) orange, if the 14-day cumulative COVID-19 case notification rate is less than 75 
but the test positivity rate of tests for COVID-19 infection is 4% or more, or, if the 
14-day  cumulative  COVID-19  case  notification  rate  ranges  from  25  to  150  but  the 
test positivity rate of tests for COVID-19 infection is less than 4%; 

(c) red, if the 14-day cumulative COVID-19 case notification rate ranges from 75 to 
150 and the test positivity rate of tests for COVID-19 infection is 4% or more, or if 
the  14-day  cumulative  COVID-19  case  notification  rate  is  more  than  150  but  less 
than 500;”. 

4. 

In point 13, letters (b), (c) and (d) are replaced by the following: 

“(b) Member States could take into account additional criteria and trends, including 
vaccination  uptake.  To  this  end,  the  European  Centre  for  Disease  Prevention  and 
Control will provide data on the population size, the hospitalisation rate, the rate of 
ICU admission and the mortality rate, if available, on a weekly basis; 

(c)  Member  States  should  take  into  account  the  epidemiological  situation  in  their 
own  territory,  including  the  prevalence  of  SARS-CoV-2  variants  of  concern  or 
interest, vaccination uptake, testing policies, the number of tests performed and test 
positivity rates, and other epidemiological indicators; 

(d)  Member  States  should  take  into  account  testing  strategies  and  pay  particular 
attention to the situation of areas with high testing rates.”. 

5. 

6. 

In point 13, letter (e) is deleted. 

The following point 13a is inserted: 

“By derogation from points 12, 15 and 16, Member States should take into account 
the  prevalence  of  SARS-CoV-2  variants  of  concern  or  interest,  especially  variants 
that increase transmissibility or disease severity or affect vaccine efficacy, as well as 
sequencing  volume  and  their  level  of  transmission  in  the  EU/EEA  area,  regardless 
how the area concerned is classified. For this purpose, Member States should make 
use of the data published by the European Centre for Disease Prevention and Control 

EN 

14 

  EN 

on  variants  of  concern  or  interest  in  the  EU/EEA19.  To  obtain  timely  and  accurate 
information on the emergence and circulation of SARS-CoV-2 variants of concern or 
interest, Member States should meet the sequencing volumes of at least 10% or 500 
sequences of SARS-CoV-2-positive cases sequenced per week recommended by the 
European Centre for Disease Prevention and Control.”. 

7. 

Point 16a is replaced by the following: 

“Member States should strongly discourage all non-essential travel to and from areas 
classified as ‘dark red’ pursuant to point 10. 

Member States should  also  strongly discourage all non-essential travel  to and from 
areas with a high prevalence of SARS-CoV-2 variants of concern or interest and to 
and from areas with an unknown prevalence due to insufficient sequencing volume. 

At the same time, Member States should seek to avoid disruptions to essential travel, 
to  keep  transport  flows  moving  in  line  with  the  ‘Green  Lanes’  system  as  well  as 
avoid disruptions to supply chains and the movement of workers and self-employed 
persons travelling for professional or business reasons.”. 

8. 

Point 17 is replaced by the following: 

“Member  States  should  in  principle  not  refuse  the  entry  of  persons  travelling  from 
other Member States. 

Member States that consider necessary to introduce restrictions to free movement on 
grounds  of  public  health,  based  on  their  own  decision-making  processes,  could 
require persons travelling from an area classified as ‘orange’ pursuant to point 10 to 
be  in  the  possession  of  a  test  certificate  issued  in  line  with  [EU  Digital  COVID 
Certificate Regulation] indicating a negative test result obtained 

– 

– 

not more than 72 hours before arrival, in case of molecular nucleic acid 
amplification test (NAAT); or 

not  more  than  48  hours  before  arrival,  in  case  of  a  rapid  antigen  tests 
(RAT). 

Persons not in the possession of such a test certificate could be required to undergo a 
test after arrival. 

Member States that consider necessary to introduce restrictions to free movement on 
grounds  of  public  health,  based  on  their  own  decision-making  processes,  could 
require persons travelling from an area classified as ‘red’ or ‘grey’ pursuant to point 
10  to  undergo  quarantine/self-isolation  as  recommended  by  the  Health  Security 
Committee20 unless they are in the possession of a test certificate issued in line with 
[EU  Digital  COVID  Certificate  Regulation],  indicating  a  negative  test  result 
obtained 

– 

not more than 72 hours before arrival, in case of molecular nucleic acid 
amplification test (NAAT); or 

19 
20 

Available at: https://www.ecdc.europa.eu/en/covid-19/situation-updates/variants-dashboard  
Recommendations  for  a  common  EU  approach  regarding  isolation  for  COVID-19  patients  and 
quarantine  for  contacts  and  travellers,  agreed  by  the  Health  Security  Committee  on  11  January  2021, 
https://ec.europa.eu/health/sites/health/files/preparedness_response/docs/hsc_quarantine-
isolation_recomm_en.pdf  

EN 

15 

  EN 

                                                 
– 

not  more  than  48  hours  before  arrival,  in  case  of  a  rapid  antigen  tests 
(RAT). 

Quarantine/self-isolation  imposed  on  persons  not  in  the  possession  of  such  a  test 
certificate should be lifted when a negative test result is obtained after arrival, unless 
the traveller develops symptoms of COVID-19. 

Member  States  should  strengthen  coordination  efforts  on 
length  of 
quarantine/self-isolation  and  substitution  possibilities.  Wherever  possible  and  in 
accordance  with  strategies  decided  by  Member  States,  the  development  of  testing 
should be encouraged. 

the 

The test for SARS-CoV-2 infection required pursuant to this point could be either a 
molecular  nucleic  acid  amplification  test  (NAAT)  or  a  rapid  antigen  test  listed  in 
Annex I of the common list of COVID-19 rapid antigen tests agreed by the Health 
Security  Committee21,  as  determined  by  the  Member  State  of  destination.  Member 
States  should  offer  affordable  and  widely  available  testing  possibilities,  while 
ensuring that doing so does not detract from the provision of essential public health 
services, in particular in terms of laboratory  capacity.”. 

9. 

The following point 17aa is inserted: 

“By derogation from points 17 and 17a and without prejudice to point 17ac, holders 
of  vaccination  certificates  issued  in  line  with  [EU  Digital  COVID  Certificate 
Regulation]  for  a  COVID-19  vaccine  covered  by  the  first  sub-paragraph  of  Article 
5(5)  of  that  Regulation  according  to  which  at  least  14  days  have  passed  since  full 
vaccination should not be subject to additional restrictions to free movement, such as 
additional  travel-related  testing  for  SARS-CoV-2  infection  or  travel-related  self-
isolation  or  quarantine.  For  the  purpose  of  this  Recommendation,  full  vaccination 
should be understood as: 

(a) 

having received the second dose in a 2-dose series; 

(b)  having received a single-dose vaccine;  

(c) 

having received a single dose of a 2-dose vaccine after having previously 
been infected with SARS-CoV-2.”. 

10. 

The following point 17ab is inserted: 

“By derogation from points 17 and 17a and without prejudice to point 17ac, holders 
of  certificates  of  a  recovery  issued  in  line  with  [EU  Digital  COVID  Certificate 
Regulation] indicating that less than 180 days have passed since the date of the first 
positive  test  result  should  be  not  be  subject  to  additional  restrictions  to  free 
movement,  such  as  additional  travel-related  testing  for  SARS-CoV-2  infection  or 
travel-related self-isolation or quarantine.”. 

11. 

The following point 17ac is inserted: 

“If the epidemiological situation in a Member State or in a region within a Member 
State deteriorates rapidly, resulting in a classification as ‘dark red’ pursuant to point 
10,  or  if  a  high  prevalence  of  SARS-CoV-2  variants  of  concern  or  interest  that 
increase  transmissibility,  disease  severity  or  affect  vaccine  efficacy  has  been 
reported,  Member  States  should  require  holders  of  vaccination  certificates  or 

21 

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Available 
19_rat_common-list_en.pdf  

at: 

https://ec.europa.eu/health/sites/default/files/preparedness_response/docs/covid-

16 

  EN 

                                                 
certificates  of  recovery  to  undergo  a  test  for  SARS-CoV-2  infection  and/or 
quarantine/self-isolation. 

Based on information provided to the Commission and the Member States pursuant 
to  Article  11  of  the  [EU  Digital  COVID  Certificate  Regulation],  and  in  particular 
where  restrictions  are  imposed  due  to  a  new  SARS-CoV-2  variants  of  concern  or 
interest,  the  Council,  in  close  cooperation  with  the  Commission,  should review  the 
situation in a coordinated manner.”. 

12. 

13. 

Point 18 is deleted. 

Point 19a is replaced by the following: 

“Pursuant  to  point  17a,  and  subject  to  the  exemptions  in  points  17aa  and  17ab, 
travellers with an essential function or need travelling from a ‘dark red’ area should 
fulfil  testing  requirements  and  undergo  quarantine/self-isolation,  provided  that  this 
does not have a disproportionate impact on the exercise of their function or need. 

By way of derogation, transport workers and transport service providers pursuant to 
point  19(b)  should  in  principle  not  be  required  to  undergo  a  test  for  COVID-19 
infection in line with points 17(b) and 17a. Where a Member State requires transport 
workers  and  transport  service  providers  to  undergo  a  test  for  COVID-19  infection, 
rapid antigen tests should be used and the exemptions in points 17aa and 17ab should 
apply,  and  this  should  not  lead  to  transport  disruptions.  Should  transport  or  supply 
chain  disruptions  occur,  Member  States  should  lift  or  repeal  any  such  systematic 
testing requirements immediately in order to preserve the functioning of the ‘Green 
Lanes’. Transport workers and transport service providers should not be required to 
undergo quarantine in line with points 17(a) and 17a while exercising this essential 
function.”. 

14. 

Point 19b is replaced by the following: 

“In  addition  to  the  exemptions  in  point  19a,  Member  States  should  not  require 
persons  living  in  border  regions  and  travelling  across  the  border  on  a  daily  or 
frequent basis for the purposes of work, business, education, family, medical care or 
caregiving  to  undergo  a  test  or  quarantine/self-isolation,  in  particular  persons 
exercising  critical  functions  or  essential  for  critical  infrastructure.  If  a  testing 
requirement on cross-border travel is introduced in these regions, the frequency and 
type  of  tests  on  such  persons  should  be  proportionate  and  should  allow  for  the 
exemptions set out in points 17aa and 17ab. If the epidemiological situation on both 
sides  of  the  border  is  comparable,  no  travel-related  testing  requirement  should  be 
imposed.  Persons  who  claim  that  their  situation  falls  within  the  scope  of  this  point 
could be required to provide documentary evidence  or  submit  a  declaration  to  this 
effect.”. 

15. 

The following point 19c is inserted: 

“Minors  accompanying  their  parent  or  parents  should  not  be  required  to  undergo 
travel-related quarantine/self-isolation where no such requirement is imposed on the 
parent  or  parents,  for  example  due  to  the  exemptions  in  point  17aa  and  17ab.  In 
addition, children under the age of 6 years should be exempt from the requirement to 
undergo travel-related tests for SARS-CoV-2 infection.”. 

16. 

Point 20 is replaced by the following: 

“Member  States  should  consider  requiring  persons  travelling  to  their  territory  by 
means  of  collective  transport  modes  with  pre-assigned  seat  or  cabin  to  submit 

EN 

17 

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Passenger Locator Forms (PLF) in accordance with data protection requirements. For 
this  purpose,  Member  States  are  encouraged  to  make  use  of  the  common  Digital 
Passenger  Locator  Form developed by the EU Healthy  Gateways22. Member States 
should join the PLF Exchange Platform to enhance their cross-border contact tracing 
capabilities for all transport modes.”. 

17. 

Point 23 is replaced by the following: 

“If  a  person  develops  symptoms  upon  arrival  at  the  destination,  testing,  diagnosis, 
isolation and contact tracing should take place in accordance with the local practice, 
and entry should not be refused. Information on cases detected on arrival should be 
immediately  shared  with  the  public  health  authorities  of  the  countries  the  person 
concerned  has  resided  in  during  the  previous  14  days  for  contact  tracing  purposes, 
using, where applicable, the PLF Exchange Platform, or otherwise the Early Warning 
and Response System.”. 

18. 

Point 25 is replaced by the following: 

“In  line  with  Article  11  of  [EU  Digital  COVID  Certificate  Regulation],  Member 
States  should  provide  relevant  stakeholders  and  the  general  public  with  clear, 
comprehensive and timely information about any restrictions to free movement, any 
accompanying  requirements  (for  example  which  specific  tests  for  SARS-CoV-2 
infection  qualify  for  the  waiving  of  restrictions,  or  the  need  to  submit  passenger 
locator forms), as well as the measures applied to travellers travelling from risk areas 
as  early  as  possible  before  new  measures  come  into  effect.  As  a  general  rule,  this 
information  should  be  published  24  hours  before  the  measures  come  into  effect, 
taking into account that some flexibility is required for epidemiological emergencies. 
The information should also be published in a machine-readable format. 

This information should also be made available on the ‘Re-open EU’ web platform, 
which  should  contain  the  map  published  regularly  by  the  European  Centre  for 
Disease Prevention and Control pursuant to points 10 and 11. 

The  substance  of  the  measures,  their  geographical  scope  and  the  categories  of 
persons to whom they apply should be clearly described.”. 

19. 

After point 25, the following heading is inserted: 

“Rollout of the EU Digital COVID Certificate”. 

20. 

The following point 25a is inserted: 

“The rollout of the EU  Digital  COVID Certificate should start  as soon  as possible, 
based on the technical specifications developed by the Member States in the eHealth 
Network23. 

Before the entry into application of the [EU Digital COVID Certificate Regulation], 
references  to  certificates  issued  in  line  with  the  Regulation  should  also  cover 
certificates issued in another format.”. 

22 
23 

https://www.euplf.eu/en/home/index.html  
Available at: https://ec.europa.eu/health/ehealth/covid-19_en  

EN 

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Done at Brussels, 

For the Council 
The President 

EN 

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