Proposal for a REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL amending Regulation (EU) 2021/953 on a framework for the issuance, verification and acceptance of interoperable COVID-19 vaccination, test and recovery certificates (EU Digital COVID Certificate) to facilitate free movement during the COVID-19 pandemic
Date: 2022-02-03
Institutions: Directorate-General for Justice and Consumers, European Commission
Subjects: EU national, border control, clinical trial, coronavirus disease, epidemic, free movement of persons, health certificate, health control, internal border of the EU, vaccination, vaccine

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   EUROPEAN COMMISSION  Brussels, 3.2.2022  COM(2022) 50 final 2022/0031 (COD)  Proposal for a REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL amending Regulation (EU) 2021/953 on a framework for the issuance, verification and acceptance of interoperable COVID-19 vaccination, test and recovery certificates (EU Digital COVID Certificate) to facilitate free movement during the COVID-19 pandemic (Text with EEA relevance)  
 
EXPLANATORY MEMORANDUM 

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CONTEXT OF THE PROPOSAL 

Reasons for and objectives of the proposal 

The right of Union citizens to move and reside freely within the European Union, enshrined in 
Article  21  of  the  Treaty  on  the  Functioning  of  the  European  Union  (TFEU),  is  one  of  the 
Union’s most cherished achievements, and an important driver of its economy. At the same 
time,  the  ongoing  coronavirus  disease  2019  (‘COVID‑19’)  pandemic  continues  to  pose  an 
extraordinary threat  to  public health across the Union. This  has led Member States to  adopt 
public health measures seeking to protect individuals’ health  as well as the capacity of their 
healthcare systems, some of which have been related to travel between Member States. 

To  facilitate  safe  free  movement  during  the  COVID-19  pandemic,  the  European  Parliament 
and  the  Council  adopted,  on  14 June  2021,  Regulation  (EU)  2021/9531  establishing  the  EU 
Digital  COVID  Certificate  framework  for  the  issuance,  verification  and  acceptance  of 
interoperable  COVID-19  vaccination,  test  and  recovery  certificates2.  Regulation  (EU) 
2021/953  facilitates  free  movement  by  providing  citizens  with  interoperable  and  mutually 
accepted certificates on COVID-19 vaccination, testing and recovery that they can use when 
travelling. Where Member States waive certain restrictions on free movement for persons in 
the  possession  of  proof  of  vaccination,  test  or  recovery,  the  EU  Digital  COVID  Certificate 
allows citizens to profit from these exemptions.  

Since its adoption, the EU Digital COVID Certificate has been successfully rolled out across 
the  Union,  with  more  than  1  billion  certificates  issued  by  the  end  of  2021.  The  EU  Digital 
COVID  Certificate  is  thus  a  widely  available  and  reliably  accepted  tool  to  facilitate  free 
movement during the COVID-19 pandemic. According to a Eurobarometer survey published 
in September 2021, about two-thirds (65%) of respondents agreed that the EU Digital COVID 
Certificate  is  the  safest  means  for  free  travel  in  Europe  during  the  COVID-19  pandemic3. 
Almost all Member States also use the EU Digital COVID Certificate for domestic purposes, 
with  studies  estimating  that  its  use  has  resulted  in  increased  vaccination  uptake4,  lower 
hospital admissions, fewer economic losses and, most importantly, fewer deaths5. 

In addition, the EU Digital COVID Certificate system has proven to be the only functioning 
COVID-19  certificate system  operational  at  international  level  on a large scale.  As a result, 
the EU Digital COVID Certificate has gained increasing  global significance and contributed 
to addressing the pandemic at  the international level, by  facilitating safe international  travel 
and international recovery. By 31 January 2022, the three non-EU European Economic Area 

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Regulation  (EU)  2021/953  of  the  European  Parliament  and  of  the  Council  of  14  June  2021  on  a 
framework  for  the  issuance,  verification  and  acceptance  of  interoperable  COVID-19  vaccination,  test 
and  recovery  certificates  (EU  Digital  COVID  Certificate)  to  facilitate  free  movement  during  the 
COVID-19 pandemic (OJ L 211, 15.6.2021, p. 1). 
Accompanied by Regulation (EU) 2021/954 of the European Parliament and of the Council of 14 June 
2021  on  a  framework  for  the  issuance,  verification  and  acceptance  of  interoperable  COVID-19 
vaccination, test and recovery certificates (EU Digital COVID Certificate) with regard to third-country 
nationals legally staying or residing in the territories of Member States during the COVID-19 pandemic 
(OJ L 211, 15.6.2021, p. 24). 
Available  at:  https://www.europarl.europa.eu/at-your-service/files/be-heard/eurobarometer/2021/soteu-
flash-survey/soteu-2021-report-en.pdf 
https://www.medrxiv.org/content/10.1101/2021.10.21.21265355v2  
https://www.bruegel.org/2022/01/the-effect-of-covid-certificates-on-vaccine-uptake-public-health-and-
the-economy/  

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countries6, Switzerland7 and 29 other third countries and territories8 are connected to the EU 
Digital COVID Certificate system, with more expected to join in the future. The EU Digital 
COVID Certificate system has been recognised as one of the  key digital solutions to restore 
international  mobility9,  with  the  International  Air  Transport  Association  urging  countries  to 
adopt  the  EU  Digital  COVID  Certificate  as  the  global  standard10.  The  Commission  will 
continue its efforts to support third countries interested in developing interoperable COVID-
19 certificate systems. This  may  include offering additional  open source  reference solutions 
that  allow  for  the  conversion  of  third-country  certificates  into  a  format  that  is  interoperable 
with  the  EU  Digital  COVID  Certificate,  as  it  is  also  possible  to  connect  third  countries  the 
certificates of which are made interoperable by means of conversion11. 

To make best use of the EU Digital COVID Certificate framework, the Council  has adopted 
several  recommendations on a coordinated approach to facilitate safe  free movement during 
the  COVID-19  pandemic.  According  to  the  most  recent  update,  Council  Recommendation 
(EU)  2022/107  adopted  on  25  January  202212,  holders  of  EU  Digital  COVID  Certificates 
meeting  certain  requirements  should,  in  almost  all  circumstances,  not  be  subject  to  any 
additional  requirements  when  exercising  their  free  movement  rights.  This  ‘person-based 
approach’ thus necessitates the continuous availability of EU Digital COVID Certificates. 

Since the adoption of Regulation (EU) 2021/953, the epidemiological situation with regard to 
the  COVID-19  pandemic  has  evolved  considerably.  On  the  one  hand,  by  31  January  2022, 
more than 80% of the adult population in the Union have completed their primary vaccination 
cycle,  and  more  than  50%  have  received  a  booster  dose,  despite  significant  differences 
between Member States13. Increasing vaccine uptake remains a crucial objective in the fight 
against the pandemic, given the protection against hospitalisation and severe disease afforded 
by  vaccination,  and  thus  plays  an  important  role  in  ensuring  that  restrictions  to  the  free 
movement of persons can be lifted. 

On the other hand, the spread of the SARS-CoV-2 variant of concern ‘Delta’ in  the second 
half  of  2021  caused  significant  increases  in  the  number  of  infections,  hospitalisation  and 
deaths, requiring Member States to adopt strict public health measures in an effort to protect 
their  healthcare  system  capacity.  In  early  2022,  the  SARS-CoV-2  variant  of  concern 
‘Omicron’ caused sharp increases in the number of COVID-19 cases, rapidly replacing Delta 
and reaching an unprecedented intensity of community transmission across the Union. 

As  noted  by  the  European  Centre  for  Disease  Prevention  and  Control  (ECDC)  in  its  Rapid 
Risk  Assessment  of  27  January  202214,  Omicron  infections  appear  less  likely  to  lead  to  a 
severe  clinical  outcome  that  requires  hospitalisation  or  admission  to  intensive  care  units. 

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Iceland, Liechtenstein and Norway. 
Union  citizens  and  Swiss  nationals  enjoy  reciprocal  rights  of  entry  and  residence  based  on  the 
Agreement  between  the  European  Community  and  its  Member  States,  of  the  one  part,  and  the  Swiss 
Confederation, of the other, on the free movement of persons (OJ L 114, 30.4.2002, p. 6). 
https://ec.europa.eu/info/live-work-travel-eu/coronavirus-response/safe-covid-19-vaccines-
europeans/eu-digital-covid-certificate_en#recognition-of-covid-certificates-from-third-non-eu-countries  
https://wttc.org/News-Article/WTTC-identifies-digital-solutions-for-governments-worldwide-to-
significantly-restore-international-mobility  
https://www.iata.org/en/pressroom/2021-releases/2021-08-26-01/  
By means of an implementing act adopted pursuant to Article 8(2) of Regulation (EU) 2021/953. 
Council  Recommendation  (EU)  2022/107  of  25 January  2022  on  a  coordinated  approach  to  facilitate 
safe  free movement during the COVID-19 pandemic and replacing Recommendation (EU) 2020/1475 
(OJ L 18, 27.1.2022, p. 110). 
https://vaccinetracker.ecdc.europa.eu/public/extensions/COVID-19/vaccine-tracker.html  
https://www.ecdc.europa.eu/sites/default/files/documents/RRA-19th%20update-27-jan-2022.pdf  

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Although  the  reduction  in  severity  is  partially  due  to  inherent  characteristics  of  the  virus, 
results from vaccine effectiveness studies have shown that vaccination plays a significant role 
in  preventing  severe  clinical  outcomes  from  Omicron  infection,  with  effectiveness  against 
severe  illness  increasing  significantly  among  people  having  received  three  vaccine  doses. 
Furthermore, given the very high levels of community transmission, leading to many people 
being  sick  at  the  same  time,  Member  States  are  likely  to  undergo  a  period  of  substantial 
pressure on their healthcare systems and on the functioning of the society as a whole, mainly 
through absence from work and education. 

After  a  peak  in  Omicron  cases,  a  high  proportion  of  the  population  is  expected  to  enjoy,  at 
least  for  a  certain  period,  protection  from  COVID-19  either  due  to  vaccination  or  prior 
infection, or both. However, it is not possible to predict the impact of a possible increase in 
infections  in  the  second  half  of  2022.  In  addition,  the  possibility  of  a  worsening  of  the 
pandemic situation because of the emergence of new SARS-CoV-2 variants of concern cannot 
be ruled out. 

In  view  of  the  above,  it  cannot  be  excluded  that  Member  States  continue  to  require  Union 
citizens  exercising  their  right  to  free  movement  to  present  proof  of  COVID-19  vaccination, 
test  or  recovery  beyond  30  June  2022,  that  is,  the  date  when  Regulation  (EU)  2021/953  is 
currently  set  to  expire.  It  is  thus  important  to  avoid  that  Union  citizens  and  their  family 
members are deprived of the possibility to make use of their EU Digital COVID Certificates, 
which are an effective, secure and privacy-preserving way of proving one’s COVID-19 status, 
in the event that certain restrictions to free movement based on public health are still in place 
after 30 June 2022. 

At  the  same  time,  given  that  any  restrictions  to  the  free  movement  of  persons  within  the 
Union put in place to limit the spread of SARS-CoV-2, including the requirement to present 
EU  Digital  COVID  Certificates,  should  be  lifted  as  soon  as  the  epidemiological  situation 
allows,  the  Commission  proposes  to  limit  the  extension  to 12  months.  Furthermore,  the 
extension  of  the  Regulation  should  not  be  understood  as  requiring  Member  States,  in 
particular  those  that  lift  domestic  public  health  measures,  to  maintain  or  impose  free 
movement restrictions. 

In  addition,  the  Commission  also  proposes  to  amend  a  small  number  of  other  provisions  of 
Regulation (EU) 2021/953. 

According to Regulation (EU) 2021/953, test certificates are to be issued based on two types 
of  tests  for  SARS-CoV-2  infection,  namely  molecular  nucleic  acid  amplification  tests 
(NAAT),  including  those  using  reverse  transcription  polymerase  chain  reaction  (RT-PCR), 
and rapid antigen tests, which rely on detection of viral proteins (antigens) using a lateral flow 
immunoassay  that  gives  results  in  less  than 30  minutes,  provided  they  are  carried  out  by 
health  professionals  or  by  skilled  testing  personnel.  On  the  other  hand,  Regulation  (EU) 
2021/953  does  not  cover  other  types  of  antigenic  assays,  such  as  enzyme-linked 
immunosorbent  assays  (ELISA)  or  automated  immunoassays,  which  test  for  antigens  in  a 
laboratory setting. 
As of July 2021, the technical working group on COVID-19 diagnostic tests15, responsible for 
preparing updates to the common list of COVID-19 rapid antigen tests16 agreed by the Health 
Security Committee, also reviews proposals put forward by Member States and manufacturers 

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https://ec.europa.eu/health/health-security-and-infectious-diseases/crisis-management/covid-19-
diagnostic-tests_en  
https://ec.europa.eu/health/system/files/2022-01/covid-19_rat_common-list_en.pdf  

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for  COVID-19  laboratory-based  antigenic  assays.  These  proposals  are  assessed  against  the 
same  criteria  as  those  used  for  rapid  antigen  tests,  and  the  Health  Security  Committee  has 
established a list of the laboratory-based antigenic assays that meet these criteria. As a result, 
and in an effort to enlarge the scope of the different types of diagnostic tests that may be used 
as the basis for the issuance of an EU Digital COVID Certificate, the Commission proposes 
that  it  should  be  possible  for  Member  States  to  issue  test  certificates  on  the  basis  of  listed 
laboratory-based antigenic assays. 

Scientific progress also takes place in other areas of the fight against COVID-19, in particular 
vaccination.  Vaccine  manufacturers  continue  the  development  of  new  and/or  adapted 
COVID-19  vaccines,  and  studies  are  carried  out  regarding  the  continued  effectiveness  of 
existing  ones.  It  is  necessary  to  ensure  that  the  EU  Digital  COVID  Certificate  system  can 
adapt  to  new  developments  in  this  area,  such  as  a  possible  rollout  of  COVID-19  vaccines 
targeting  SARS-CoV-2  variants.  This  progress  may  require  future  adaptations  to  the 
information  included  in  the  vaccination  certificate,  in  particular  regarding  the  COVID-19 
vaccines administered, such as by way of a delegated act adopted pursuant to Article 5(2) of 
the Regulation. 

In particular in light of the emergence of new SARS-CoV-2 variants of concern, the continued 
development and study of COVID-19 vaccines remains crucial. In this context, it is important 
to  facilitate  the  participation  of  volunteers  in  clinical  trials,  that  is,  studies  performed  to 
investigate  the  safety  or  efficacy  of  a  medicine,  such  as  a  COVID-19  vaccine.  Clinical 
research plays a fundamental role in the development of vaccines. Voluntary participation in 
clinical trials should therefore be encouraged. Depriving volunteers from access to EU Digital 
COVID  Certificates  could  constitute  a  major  disincentive  to  participate,  delaying  the 
conclusion  of  clinical  trials  and  negatively  impacting  public  health  more  generally.  In 
addition, the integrity of clinical trials, including in terms of data blinding and confidentiality, 
should be preserved to ensure the validity of their results. 

For this purpose, persons participating in clinical trials that have been approved by Member 
States’ ethical committees and competent authorities should be able to receive an EU Digital 
COVID Certificate. These may be issued by the Member State where the dose is administered 
regardless  whether  the  participants  have  received  the  COVID-19  vaccine  candidate  or  the 
dose administered to the control group to avoid undermining the studies. It should be clarified 
that  other  Member  States  may  accept  such  certificates  in  order  to  waive  restrictions  to  free 
movement  put  in  place  to  limit  the  spread  of  SARS-CoV-2.  If  a  COVID-19  vaccine 
undergoing  clinical  trials  is  subsequently  granted  a  marketing  authorisation  pursuant  to 
Regulation  (EC)  No 726/200417,  vaccination  certificates  for  that  vaccine  fall,  as  of  that 
moment,  within  the  scope  of  the  first  subparagraph  of  Article  5(5)  of  Regulation  (EU) 
2021/953. To ensure a coherent approach with regards to the acceptance of certificates issued 
for  a  COVID-19  vaccine  undergoing  clinical  trials  that  has  not  yet  received  a  marketing 
authorisation,  the  Health  Security  Committee,  ECDC  or  the  European  Medicines  Agency 
(EMA)  may  be  asked  to  issue  guidance,  which  should  take  into  account  the  ethical  and 
scientific criteria necessary for carrying out clinical trials. 

Vaccination certificates issued by Member States in the EU Digital COVID Certificate format 
must contain, among other information, the number of doses administered to the holder. The 
Commission proposes to clarify that this obligation is not limited to doses administered in the 

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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). 

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Member State issuing the certificate, but covers all doses administered to the holder, including 
in  other  Member  States.  Limiting  the  indication  of  previous  doses  to  those  received  in  the 
Member State issuing the certificate could lead to a divergence between the number actually 
administered  and  that  indicated  on  the  certificate.  The  administration  of  previous  doses  in 
other  Member  States  is  proven  by  means  of  the  corresponding  valid  EU  Digital  COVID 
Certificates,  which  must  be  issued  to  the  persons  concerned  pursuant  to  Article  5(1)  of 
Regulation (EU) 2021/953. Where the information in the certificate is incorrect, the holder is 
entitled,  pursuant  to  Article  3(4)  of  Regulation  (EU)  2021/953,  to  request  the  issuance  of  a 
new certificate. 

The Commission does not propose to extend the scope of Regulation (EU) 2021/953 as far as 
the domestic use of EU Digital COVID Certificates is concerned. As noted in Recital 48 of 
Regulation (EU) 2021/953, Member States may process personal data contained in EU Digital 
COVID Certificates for other purposes, if the legal basis for the processing of such data for 
other purposes, including the related retention periods, is provided for in national law, which 
must  comply  with  Union  data  protection  law.  Regulation  (EU)  2021/953  thus  neither 
prescribes  nor  prohibits  the  domestic  use  of  EU  Digital  COVID  Certificate,  which  remains 
within the remit of Member States and subject to judicial control by national courts. 

On  18  October  2021,  the  Commission  published  its  first  report  on  the  EU  Digital  COVID 
Certificate18.  Pursuant  to  Article  16(2)  of  Regulation  (EU)  2021/953,  the  Commission  is  to 
submit a second report to  the European Parliament  and to  the Council on the application of 
the Regulation by 31 March 2022. That report is to contain, in particular, an assessment of the 
impact  of  this  Regulation  on  the  facilitation  of  free  movement,  including  on  travel  and 
tourism  and  the  acceptance  of  the  different  types  of  vaccine,  fundamental  rights  and  non-
discrimination, as well as on the protection of personal data during the COVID-19 pandemic.  

As  noted  in  the  first  report,  the  Commission  is  putting  forward  this  proposal  prior  to  the 
adoption  of  the  second  report  in  order  to  ensure  that,  for  reasons  of  legal  certainty,  the 
necessary legislative procedure can be concluded sufficiently in time before June 2022. At the 
same time, this proposal builds on an analysis of the different  aspects  to  be covered in  that 
report. For the reasons set out in this proposal, the Commission considers that the EU Digital 
COVID  Certificate  has  positively  affected  free  movement  within  the  EU,  given  that  its 
absence would likely have resulted in the development of incompatible national solutions. To 
widen  the  scope  of  the  different  types  of  vaccines  accepted,  the  Commission  proposes  to 
include  COVID-19  vaccines  undergoing  clinical  trials.  The  impact  of  extending  the  EU 
Digital  COVID  Certificate  Regulation  on  fundamental  rights,  non-discrimination  and  the 
protection of personal data is addressed below. 

• 

Consistency with existing policy provisions in the policy area 

The  proposal  complements  other  policy  initiatives  adopted  in  the  field  of  free  movement 
during  the  COVID-19  pandemic,  such  as  Council  Recommendations  (EU)  2020/1475, 
2021/119,  2021/961  and  2022/107.  In  particular,  Council  Recommendation  (EU)  2022/107 
provides that the holders of valid EU Digital COVID Certificates should, in almost all cases, 
not be subject to additional restrictions. 

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Report from the Commission to the European Parliament and the Council pursuant to Article 16(1) of 
Regulation  (EU)  2021/953  of  the  European  Parliament  and  of  the  Council  on  a  framework  for  the 
issuance,  verification  and  acceptance  of  interoperable  COVID-19  vaccination,  test  and  recovery 
certificates  (EU  Digital  COVID  Certificate)  to  facilitate  free  movement  during  the  COVID-19 
pandemic (COM(2021) 649 final). 

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Directive 2004/38/EC of the European Parliament and of the Council19 sets out the conditions 
for the exercise of the right of free movement and residence (both temporary and permanent) 
in the Union for Union citizens and their family members. Directive 2004/38/EC provides that 
Member  States  may  restrict  the  freedom  of  movement  and  residence  of  Union  citizens  and 
their family members, irrespective of nationality, on grounds of public policy, public security 
or public health. 

Regulation (EU) 2021/953 is the only existing Union legislation containing provisions on the 
issuance,  verification  and  acceptance  of  certificates  documenting  the  holder’s  COVID-19 
status. As Member States may, as a public health measure, continue to require the production 
of  such  certificates  in  order  to  waive  certain  restrictions  on  the  right  to  free  movement 
imposed during the COVID-19 pandemic, it is necessary to extend the period of application of 
the Regulation. 

• 

Consistency with other Union policies 

This  proposal  is  part  of  the  package  of  Union  measures  to  respond  to  the  COVID-19 
pandemic. It builds, in particular, on work carried out in the Health Security Committee, the 
eHealth Network, and the EU Digital COVID Certificate Committee. 

This proposal is complemented by proposal COM(2022) 55 final, which seeks to extend the 
application  of  Regulation  (EU)  2021/954  on  a  framework  for  the  issuance,  verification  and 
acceptance of interoperable COVID-19 vaccination, test and recovery certificates (EU Digital 
COVID  Certificate)  with  regard  to  third-country  nationals  legally  staying  or  residing  in  the 
territories of Member States during the COVID-19 pandemic20. 

In its proposal for a Council Recommendation amending Recommendation (EU) 2020/912 on 
the temporary restriction on non-essential travel into the EU and the possible lifting of such 
restriction21, 
link  between  Council 
Recommendation  (EU)  2020/912  and  the  EU  Digital  COVID  Certificate  so  to  assist  the 
Member  States  authorities  in  verifying  the  authenticity,  validity  and  integrity  of  the 
certificates issued by third countries. 

the  Commission  proposed 

to  establish  a  clear 

This  proposal  is  without prejudice to  the Schengen rules  as regards the  entry  conditions  for 
third country nationals. The proposed Regulation should not be understood as encouraging or 
facilitating the reintroduction of border controls, which remain a measure of last resort subject 
to the conditions of the Schengen Borders Code22. 

This proposal also fully respects Member States’ competences in the definition of their health 
policy (Article 168 TFEU). 

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Directive 2004/38/EC of the European Parliament and of the Council of 29 April 2004 on the right of 
citizens  of  the  Union  and  their  family  members  to  move  and  reside  freely  within  the  territory  of  the 
Member  States  amending  Regulation  (EEC)  No  1612/68  and  repealing  Directives  64/221/EEC, 
68/360/EEC,  72/194/EEC,  73/148/EEC,  75/34/EEC,  75/35/EEC,  90/364/EEC,  90/365/EEC  and 
93/96/EEC (OJ L 158, 30.4.2004, p. 77). 
OJ L 211, 15.6.2021, p. 24. 
COM(2021) 754 final. 
Regulation (EU) 2016/399 of the European Parliament and of the Council of 9 March 2016 on a Union 
Code on the rules governing the movement of persons across borders (Schengen Borders Code) (OJ L 
77, 23.3.2016, p. 1). 

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2. 

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LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY 

Legal basis 

Article 21(1) TFEU confers on Union citizens the right to move and reside freely within the 
territory of the Member States. Article 21(2) provides for the possibility for the Union to act 
and to adopt provisions with a view to facilitating the right to move and reside freely within 
the territory of the Member States if action to attain this objective is necessary to facilitate the 
exercise of this right. The ordinary legislative procedure applies. 

The  proposal  would  amend  Regulation  (EU)  2021/953,  which  is  equally  based  on  Article 
21(1) TFEU. 

• 

Subsidiarity  

The  objectives  of  this  proposal,  namely  to  extend  the  application  of  Regulation  (EU) 
2021/953  and  amend  certain  provisions  thereof,  cannot  be  achieved  by  the  Member  States 
independently. Action at Union level is thus necessary. 

Absence  to  act  at  Union  level  would  result  in  Regulation  (EU)  2021/953  ceasing  to  apply, 
including  the  legal  basis  to  operate  the  EU  Digital  COVID  Certificate  trust  framework.  In 
addition,  Union citizens and their family members would no longer  enjoy a right  to  receive 
interoperable  COVID-19  vaccination,  test  and  recovery  certificates.  Finally,  Member  States 
would  no  longer  be  required  to  accept  EU  Digital  COVID  Certificates  when  waiving 
restrictions for persons who can provide proof of a certain COVID-19 status. 

• 

Proportionality 

Union action can add considerable value in addressing the challenges identified above and is 
the only way by which a single, streamlined and accepted COVID-19 certificate  framework 
can be maintained.  

The  adoption  of  unilateral  or  uncoordinated  measures  regarding  COVID-19  certificates  on 
COVID-19 vaccination, testing and recovery is likely to lead to restrictions on free movement 
that  are  inconsistent  and  fragmented,  resulting  in  uncertainty  for  Union  citizens  when 
exercising their rights.  

The  proposal  does  not  alter  the  existing  provisions  of  Regulation  (EU)  2021/953  on  the 
processing of personal data.  

The  amended  Regulation  would  again  be  time-limited,  to  ensure  that  any  restrictions  to  the 
free movement of persons within the Union put in place to limit the spread of SARS-CoV-2, 
including the requirement to present EU Digital COVID Certificates, are lifted as soon as the 
epidemiological situation allows. 

• 

Choice of the instrument 

As it is proposed to amend Regulation (EU) 2021/953, a Regulation is the only possible legal 
instrument. 

3. 

• 

RESULTS 
CONSULTATIONS AND IMPACT ASSESSMENTS 

EX-POST 

EVALUATIONS, 

OF 

STAKEHOLDER 

Stakeholder consultations 

The proposal takes into account the discussions held at regular intervals  with Member State 
authorities in different fora. 

EN 

7 

  EN 

• 

Collection and use of expertise 

The proposal builds on the epidemiological information and assessments provided by ECDC, 
the assessment of the safety, effectiveness and quality of COVID-19 vaccines carried out by 
EMA,  the  technical  exchanges  taking  place  within  the  Health  Security  Committee,  its 
technical working group on COVID-19 diagnostic tests and the eHealth Network, as well as 
relevant available scientific evidence. 

• 

Impact assessment 

In view of the urgency and the limited scope of the proposal, the Commission did not carry 
out an impact assessment. 

• 

Fundamental rights 

This proposal positively affects the fundamental right of freedom of movement and residence 
under  Article  45  of  the  Charter  of  Fundamental  Rights  of  the  European  Union  (Charter).  It 
does  so  by  ensuring  that  citizens  continue  to  enjoy  access  to  interoperable  and  mutually 
accepted certificates on COVID-19 vaccination, testing and recovery that they can use when 
travelling. Where Member States waive certain restrictions on free movement for persons in 
the possession of proof of vaccination, test or recovery, EU Digital COVID Certificates will 
allow citizens to continue to profit from these exemptions.  

The  extension  of  Regulation  (EU)  2021/953  should  not  be  understood  as  facilitating  or 
encouraging  the  adoption  of  public  health  related  restrictions  to  free  movement  during  the 
pandemic. Rather, it seeks to provide a harmonised framework for the recognition of COVID-
19 certificates in the event that a Member State applies such restrictions. Any limitations to 
the freedom of movement within the EU justified on grounds of public policy, public security 
or  public  health  must  be  necessary,  proportionate  and  based  on  objective  and  non-
discriminatory criteria. The decision as to whether to introduce restrictions to free movement 
remains the responsibility of the Member States, which must act in compliance with EU law. 

Equally, Member States retain the flexibility not to introduce restrictions to free movement, in 
particular those that lift domestic public health measures. 

The  EU  Digital  COVID  Certificate  framework  ensures  non-discrimination  by  including 
interoperable  vaccination,  test  and  recovery  certificates.  All  Member  States  are  obliged  to 
issue  the  three  different  types  of  certificates,  and  Council  Recommendation  (EU)  2022/107 
sets  out  a  coordinated  approach  as  to  their  acceptance.  As  a  result,  as  many  persons  as 
possible are able to benefit from an EU Digital COVID Certificate when exercising their right 
to free movement. Not extending Regulation (EU) 2021/953 would likely result in obstacles 
in this regard, as Union citizens would no longer enjoy a right to receive the three different 
types  of  certificates  throughout  the  Union,  but  would  likely  be  subject  to  different  national 
COVID-19  certificate  systems,  which  may  not  necessarily  cover,  at  the  same  time, 
vaccination, test and recovery. At the same time, the medical events proven by the certificates 
– vaccination, test or recovery – cannot be considered as equal from a public health point of 
view, given that unvaccinated and partially vaccinated people remain at much higher risk of 
severe outcomes23. This is also reflected in the inherently different rules regarding the validity 
of the certificates.  

By extending the application of Regulation (EU) 2021/953, this proposal implies processing 
of  personal  data,  as  set  out  in  that  Regulation,  by  another  year.  The  Commission  does  not 
propose  changes  to  the  Regulation’s  data  protection  framework.  In  particular,  personal  data 

23 

https://www.ecdc.europa.eu/sites/default/files/documents/RRA-19-update-27-jan-2022.pdf  

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8 

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contained  in  the  certificates  that  is  processed  during  their  verification  must  not  be  retained 
beyond the verification process. Regulation (EU) 2016/679 of the European Parliament and of 
the Council24 continues to apply.  

4. 

BUDGETARY IMPLICATIONS 

The Commission will use funds from the Digital Europe Programme to support the initiative. 
A Legislative Financial Statement is submitted with this proposal. 

5. 

• 

OTHER ELEMENTS 

Implementation plans and monitoring, evaluation and reporting arrangements 

The  Commission  will  continue  to  closely  monitor  the  implementation  of  Regulation  (EU) 
2021/953,  the  evolution  of  the  epidemiological  situation,  as  well  as  relevant  scientific 
progress. 

• 

Detailed explanation of the specific provisions of the proposal 

Article 1 contains the proposed changes to Regulation (EU) 2021/953, which are: 

– 

– 

– 

– 

– 

24 

A  broadening  of  the  definition  of  SARS-CoV-2  tests  that  rely  on  the  detection  of 
viral proteins (antigens) to include antigenic assays performed in a laboratory setting 
and  not  only  rapid  antigen  tests  that  give  results  in  less  than 30  minutes. 
Corresponding changes are proposed to Articles 3(1), 6(2)(b), 7(4) and point 2(i) of 
the Annex. 

An  explicit  clarification  that  vaccination  certificates  are  to  contain  the  number  of 
doses administered to the holder, regardless of the Member State in which they have 
been  administered,  to  make  sure  that  the  overall  number  actually  administered  is 
accurately reflected.  

A  clarification  that  EU  Digital  COVID  Certificates  may  also  be  issued  to  persons 
participating in clinical trials for COVID-19 vaccines, and that such certificates may 
be accepted by other Member States in order to waive restrictions to free movement. 
The Health Security Committee, ECDC or EMA may be asked by the Commission to 
issue guidance on the acceptance of COVID-19 vaccines undergoing clinical trials. If 
the  COVID-19  vaccine  is  later  granted  marketing  authorisation  at  EU  level,  such 
certificates  fall  under  the  obligatory  acceptance  set  out  in  Article  5(5),  first 
subparagraph, of Regulation (EU) 2021/953. 

An  extension  by  12  months  of  the  period  of  application  set  out  in  Article  17  of 
Regulation (EU) 2021/953, as well as of the power to adopt delegated acts set out in 
its Article 12.  

The  correction  of  a  wrong  cross-reference  in  Article  13(2)  of  Regulation  (EU) 
2021/953. 

Regulation  (EU)  2016/679  of  the  European  Parliament  and  of  the  Council  of  27  April  2016  on  the 
protection of natural persons with regard to the processing of personal data and on the free movement of 
such data, and repealing Directive 95/46/EC (General Data Protection Regulation) (OJ L 119, 4.5.2016, 
p. 1). 

EN 

9 

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2022/0031 (COD) 

Proposal for a 

REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL 

amending Regulation (EU) 2021/953 on a framework for the issuance, verification and 
acceptance of interoperable COVID-19 vaccination, test and recovery certificates (EU 
Digital COVID Certificate) to facilitate free movement during the COVID-19 pandemic 

(Text with EEA relevance) 

THE EUROPEAN PARLIAMENT AND THE COUNCIL OF THE EUROPEAN UNION, 

Having  regard  to  the  Treaty  on  the  Functioning  of  the  European  Union,  and  in  particular 
Article 21(2) thereof, 

Having regard to the proposal from the European Commission, 

After transmission of the draft legislative act to the national parliaments, 

Acting in accordance with the ordinary legislative procedure, 

Whereas: 

(1) 

(2) 

Regulation (EU) 2021/953 of the European Parliament and of the Council1 lays down 
a framework for the issuance, verification and acceptance of interoperable COVID-19 
vaccination,  test  and  recovery  certificates  (EU  Digital  COVID  Certificate)  for  the 
purpose of facilitating the holders’ exercise of their right to free movement during the 
COVID-19  pandemic.  It  is  also  to  contribute  to  facilitating  the  gradual  lifting  of 
restrictions to free movement put in place by the Member States, in accordance with 
Union law, to limit the spread of SARS-CoV-2, in a coordinated manner. 

According to Regulation (EU) 2021/953, test certificates are to be issued based on two 
types of tests for SARS-CoV-2 infection, namely molecular nucleic acid amplification 
tests (‘NAAT’), including those using reverse transcription polymerase chain reaction 
(‘RT-PCR’),  and  rapid  antigen  tests,  which  rely  on  detection  of  viral  proteins 
(antigens) using a lateral flow immunoassay that gives results in less than 30 minutes, 
provided  they  are  carried  out  by  health  professionals  or  by  skilled  testing  personnel. 
However, Regulation (EU) 2021/953 does not cover antigenic assays, such as enzyme-
linked immunosorbent assays or automated immunoassays, which test for antigens in a 
laboratory  setting.  As  of  July  2021,  the  technical  working  group  on  COVID-19 
diagnostic tests2, responsible for preparing updates to the common list of COVID-19 
rapid antigen tests3 agreed by the Health Security Committee established by Article 17 

1 

2 

3 

Regulation  (EU) 2021/953  of  the  European  Parliament  and  of  the  Council  of  14 June  2021  on  a 
framework  for  the  issuance,  verification  and  acceptance  of  interoperable  COVID-19  vaccination,  test 
and  recovery  certificates  (EU  Digital  COVID  Certificate)  to  facilitate  free  movement  during  the 
COVID-19 pandemic (OJ L 211, 15.6.2021, p. 1). 
https://ec.europa.eu/health/health-security-and-infectious-diseases/crisis-management/covid-19-
diagnostic-tests_en  
https://ec.europa.eu/health/system/files/2022-01/covid-19_rat_common-list_en.pdf  

EN 

10 

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(3) 

(4) 

of  Decision  No 1082/2013/EU  of  the  European Parliament  and  of  the  Council4,  also 
reviews  proposals  put  forward  by  Member  States  and  manufacturers  for  COVID-19 
laboratory-based  antigenic  assays.  Those  proposals  are  assessed  against  the  same 
criteria as those used for rapid  antigen tests,  and the Health Security  Committee has 
established a list of the laboratory-based antigenic assays that meet those criteria. As a 
result,  and  in  an  effort  to  enlarge  the  scope  of  the  different  types  of  diagnostic  tests 
that may be used as the basis for the issuance of an EU Digital COVID Certificate, the 
definition  for  rapid  antigen  tests  should  be  adapted  to  include  laboratory-based 
antigenic assays. It should thus be possible for Member States to issue test certificates 
on the basis of the antigen tests included in the EU common list agreed, and regularly 
updated, by the Health Security Committee as meeting the established quality criteria. 

In  accordance  with  Article  5  of  Regulation  (EU) 2021/953,  vaccination  certificates 
issued  by  Member  States  are  to  contain  the  number  of  doses  administered  to  the 
holder. It should be clarified in the text of the Regulation that this is intended to reflect 
all  doses  administered,  in  any  Member  State,  not  just  those  administered  in  the 
Member State issuing the certificate. Limiting the indication of previous doses to those 
received  in  the  Member  State  issuing  the  certificate  could  lead  to  a  divergence 
between  the  number  actually  administered  and  that  indicated  on  the  certificate,  and 
could prevent holders from making use of their certificate when exercising the right to 
free  movement  within  the  Union.  The  administration  of  previous  doses  in  other 
Member  States  is  proven  by  means  of  valid  EU  Digital  COVID  Certificates,  and  a 
Member  State  should  not  require  additional  information  or  evidence  from  citizens 
holding such certificates, such as the batch number of previous doses. In this context, 
the rules for accepting vaccination certificates issued by other Member States set out 
in Article 5(5) of Regulation (EU) 2021/953 apply. In addition, vaccination certificates 
covered  by  an  implementing  act  adopted  pursuant  to  Articles  3(10)  and 8(2)  of 
Regulation (EU) 2021/953 are, for the purpose of facilitating the holders’ exercise of 
their right to free movement, to be accepted under the same conditions as EU Digital 
COVID Certificates issued by Member States. According to Article 3(4) of Regulation 
(EU) 2021/953, the holder of an EU Digital  COVID Certificate is  entitled to  request 
the  issuance  of  a  new  certificate  if  the  personal  data  contained  in  the  original 
certificate are not accurate, including with regard to the vaccination of the holder. 

In particular in  light  of  the emergence of new SARS-CoV-2 variants  of concern, the 
continued  development  and  study  of  COVID-19  vaccines  is  a  crucial  aspect  in  the 
fight against the COVID-19 pandemic. In this context, it is important to facilitate the 
participation of volunteers in clinical trials, that is, studies performed to investigate the 
safety or efficacy of a medicine, such as a COVID-19 vaccine. Clinical research plays 
a  fundamental  role  in  the  development  of  vaccines,  and  voluntary  participation  in 
clinical trials should therefore be encouraged. Depriving volunteers from access to EU 
Digital  COVID  Certificates  could  constitute  a  major  disincentive  to  participate, 
delaying the conclusion of clinical trials and negatively impacting public health more 
generally. In addition, the integrity of clinical trials, including in terms of data blinding 
and confidentiality, should be preserved to ensure the validity of their results. It should 
thus  be  clarified  that  Member  States  may  issue  EU  Digital  COVID  Certificates  to 
participants  in  clinical  trials  that  have  been  approved  by  Member  States’  ethical 

4 

Decision  No  1082/2013/EU  of  the  European  Parliament  and  of  the  Council  of  22  October  2013  on 
serious cross-border threats to health and repealing Decision No 2119/98/EC (OJ L 293, 5.11.2013, p. 
1). 

EN 

11 

  EN 

                                                 
(5) 

(6) 

committees  and  competent  authorities,  regardless  whether  they  have  received  the 
COVID-19  vaccine  candidate  or,  to  avoid  undermining  the  studies,  the  dose 
administered to the control group. In addition, it should be clarified that other Member 
States may accept vaccination certificates for COVID-19 vaccines undergoing clinical 
trials in order to waive restrictions to free movement put in place, in accordance with 
Union  law,  in  response  to  the  COVID-19  pandemic.  If  a  COVID-19  vaccine 
undergoing clinical trials is subsequently granted a marketing authorisation pursuant to 
Regulation (EC) No 726/20045, vaccination certificates for that vaccine fall, as of that 
moment, within the scope of the first subparagraph of Article 5(5) of Regulation (EU) 
2021/953.  To  ensure  a  coherent  approach,  the  Commission  should  be  empowered  to 
ask the Health Security  Committee, the  European Centre for Disease Prevention and 
Control  (ECDC)  or  the  European  Medicines  Agency  (EMA)  to  issue  guidance  with 
regards  to  the  acceptance  of  certificates  issued  for  a  COVID-19  vaccine  undergoing 
clinical  trials  that  has  not  yet  received  a  marketing  authorisation,  which  should  take 
into account the ethical and scientific criteria necessary for carrying out clinical trials. 

Since  the  adoption  of  Regulation  (EU)  2021/953,  the  epidemiological  situation  with 
regard to the COVID-19 pandemic has evolved considerably. On the one hand, by 31 
January  2022,  more  than  80%  of  the  adult  population  in  the  Union  have  completed 
their  primary  vaccination  cycle,  and  more  than  50%  have  received  a  booster  dose, 
despite  significant  differences  between  Member  States6.  Increasing  vaccine  uptake 
remains  a  crucial  objective  in  the  fight  against  the  pandemic,  given  the  increased 
protection against hospitalisation and severe disease afforded by vaccination, and thus 
plays an important  role in ensuring that  restrictions to  the free movement of persons 
can be lifted. 

On  the  other  hand,  the  spread  of  the  SARS-CoV-2  variant  of  concern  ‘Delta’  in  the 
second half of 2021 caused an increase in the number of infections, hospitalisation and 
deaths, requiring Member States to adopt strict public health measures in an effort to 
protect healthcare system capacity. In early 2022, the SARS-CoV-2 variant of concern 
‘Omicron’ caused sharp increases in the number of COVID-19 cases, rapidly replacing 
Delta and reaching an unprecedented intensity of community transmission  across the 
Union.  As  noted  by  ECDC  in  its  Rapid  Risk  Assessment  of  27  January  20227, 
Omicron infections appear less likely to lead to a severe clinical outcome that requires 
hospitalisation or admission to intensive care units. Although the reduction in severity 
is  partially  due  to  inherent  characteristics  of  the  virus,  results  from  vaccine 
effectiveness studies have shown that vaccination plays a significant role in preventing 
severe  clinical  outcomes  from  Omicron  infection,  with  effectiveness  against  severe 
illness  increasing  significantly  among  people  having  received  three  vaccine  doses. 
Furthermore, given the very high levels of community transmission, leading to many 
people being sick at the same time, Member States are likely to undergo a period of 
substantial pressure on their healthcare systems and on the functioning of the society 
as a whole, mainly through absence from work and education. 

(7) 

After  a  peak  in  Omicron  cases,  a  high  proportion  of  the  population  is  expected  to 
enjoy,  at  least  for  a  certain  period,  protection  from  COVID-19  either  due  to 

5 

6 
7 

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://vaccinetracker.ecdc.europa.eu/public/extensions/COVID-19/vaccine-tracker.html  
https://www.ecdc.europa.eu/sites/default/files/documents/RRA-19th%20update-27-jan-2022.pdf  

EN 

12 

  EN 

                                                 
(8) 

vaccination or prior infection, or both. However, it is not possible to predict the impact 
of  a  possible  increase  in  infections  in  the  second  half  of  2022.  In  addition,  the 
possibility of a worsening of the pandemic situation because of the emergence of new 
SARS-CoV-2  variants  of  concern  cannot  be  ruled  out.  As  also  noted  by  ECDC, 
significant uncertainties remain at this stage of the COVID-19 pandemic. 

As  a  result,  it  cannot  be  excluded  that  Member  States  continue  to  require  Union 
citizens  exercising  their  right  to  free  movement  to  present  proof  of  COVID-19 
vaccination,  test  or  recovery  beyond  30  June  2022,  the  date  when  Regulation  (EU) 
2021/953  is  set  to  expire.  It  is  thus  important  to  avoid  that,  in  the  event  that  certain 
restrictions  to  free  movement  based  on  public  health  are  still  in  place  after  30  June 
2022, Union citizens and their family members are deprived of the possibility to make 
use  of  their  EU  Digital  COVID  Certificates,  which  are  an  effective,  secure  and 
privacy-preserving  way  of  proving  one’s  COVID-19  status.  At  the  same  time,  given 
that any restrictions to the free movement of persons within the Union put in place to 
limit  the  spread  of  SARS-CoV-2,  including  the  requirement  to  present  EU  Digital 
COVID Certificates, should be lifted as soon as the epidemiological situation allows, 
the extension of the application of Regulation (EU) 2021/953 should be limited to 12 
months.  In  addition,  the  extension  of  that  Regulation  should  not  be  understood  as 
requiring Member States, in particular those that lift domestic public health measures, 
to  maintain  or  impose  free  movement  restrictions.  The  power  to  adopt  acts  in 
accordance with Article 290 of the Treaty on the Functioning of the European Union 
delegated to the Commission pursuant to Regulation (EU) 2021/953 should be equally 
extended. It is necessary to ensure that the EU Digital COVID Certificate system can 
adapt to scientific progress in containing the COVID-19 pandemic. 

(9) 

The  incorrect  cross-reference  in  Article  13  of  Regulation  (EU)  2021/953  should  be 
corrected. 

(10)  Regulation (EU) 2021/953 should therefore be amended accordingly. 

(11)  Similarly,  Regulation  (EU) 2022/XXXX  of  the  European Parliament  and  of  the 
Council8  prolongs  the  period  of  application  of  Regulation  (EU) 2021/954  of  the 
European Parliament  and  of  the  Council9,  which  extends  the  EU  Digital  COVID 
Certificate framework to third-country nationals who are legally staying or residing in 
the  Schengen  area  without  controls  at  internal  borders  and  applies  as  a  matter  of 
Schengen  acquis,  without  prejudice  to  the  specific  rules  on  the  crossing  of  internal 
borders  set  out  in  Regulation  (EU) 2016/399  of  the  European Parliament  and  of  the 
Council10. 

(12)  Given the urgency of the situation related to the COVID-19 pandemic, this Regulation 
should enter into force on the third day following that of its publication in the Official 
Journal of the European Union.  

8 
9 

10 

Reference to be added. 
Regulation  (EU)  2021/954  of  the  European  Parliament  and  of  the  Council  of  14 June  2021  on  a 
framework  for  the  issuance,  verification  and  acceptance  of  interoperable  COVID  19  vaccination,  test 
and recovery certificates (EU Digital COVID Certificate) with regard to third-country nationals legally 
staying  or  residing  in  the  territories  of  Member  States  during  the  COVID  19  pandemic  (OJ  L  211, 
15.6.2021, p. 24). 
Regulation (EU) 2016/399 of the European Parliament and of the Council of 9 March 2016 on a Union 
Code on the rules governing the movement of persons across borders (Schengen Borders Code) (OJ L 
77, 23.3.2016, p. 1). 

EN 

13 

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(13)  The  European  Data  Protection  Supervisor  and  the  European  Data  Protection  Board 
were  consulted  in  accordance  with  Article  42  of  Regulation  (EU)  2018/1725  and 
delivered a joint opinion on XXXX11, 

HAVE ADOPTED THIS REGULATION: 

Regulation (EU) 2021/953 is amended as follows: 

(1) 

in Article 2, paragraph 5 is replaced by the following: 

Article 1 

“(5) “antigen test” means a test, of one of the following categories, that relies 
on detection of viral proteins (antigens) to reveal the presence of SARS-CoV-
2: 

(a) 

(b) 

rapid  antigen  tests,  such  as  lateral  flow  immunoassays  that  give 
results in less than 30 minutes,  

antigenic assays performed in a laboratory setting, such as enzyme-
linked  immunosorbent  assays  or  automated  immunoassays  for 
detection of viral antigens;”; 

(2)  Article 3 is amended as follows: 

(a) 

paragraph 1 is amended as follows: 

(i) 

point (b) is replaced by the following: 

“(b)  a  certificate  confirming  that  the  holder  has  been  subject  to  a 
NAAT  test,  or  an  antigen  test  listed  in  the  EU  common  list  of 
COVID-19 antigen tests agreed by the Health Security Committee, 
carried out by health professionals or by skilled testing personnel in 
the Member State issuing the certificate and indicating the type of 
test, the date on which it was carried out and the result of the test 
(test certificate);”; 

(ii) 

the second subparagraph is replaced by the following: 

“The Commission shall publish the EU common list of COVID-19 
antigen  tests  agreed  by  the  Health  Security  Committee,  including 
any updates.”; 

(b)  paragraph 11 is amended as follows: 

“Where  necessary,  the  Commission  shall  ask  the  Health  Security 
Committee, ECDC or EMA to issue guidance on the available scientific 
evidence on the effects of medical events documented in the certificates 
referred to in paragraph 1, in particular with regard to new SARS-CoV-2 
variants  of  concern,  and  on  the  acceptance  of  COVID-19  vaccines 
undergoing clinical trials in the Member States.”; 

(3)  Article 5 is amended as follows: 

(a) 

in paragraph 2, point (b) is replaced by the following: 

11 

Reference to be added. 

EN 

14 

  EN 

                                                 
“(b) information about the COVID-19 vaccine and the number of doses 
administered to the holder, regardless of the Member State in which they 
have been administered;”; 

(b) 

in paragraph 5, the following subparagraph is added: 

“Member  States  may  also  issue  vaccination  certificates  referred  to  in 
point  (a)  of  Article 3(1)  to  persons  participating  in  clinical  trials  that 
concern a COVID-19 vaccine  and  that  have been approved by  Member 
States’ ethical committees and competent authorities, regardless whether 
they  have  been  administered  the  vaccine  candidate  or  the  dose 
administered to the control group. The information about the COVID-19 
vaccine  to  be  included  in  the  vaccination  certificate  in  accordance  with 
the  specific  data  fields  set  out  in  point 1  of  the  Annex  shall  not 
undermine  the  integrity  of  the  clinical  trial.  Member  States  may  accept 
vaccination  certificates  issued  by  other  Member  States  in  accordance 
with this paragraph in order to waive restrictions to free movement put in 
the  spread  of 
place, 
SARS-CoV-2.”; 

in  accordance  with  Union 

limit 

law, 

to 

(4) 

in Article 6(2), point (b) is replaced by the following: 

“(b) information about the NAAT test or antigen test to which the holder was 
subject;”; 

(5) 

in Article 7, paragraph 4 is replaced by the following: 

“4.  On  the  basis  of  guidance  received  pursuant  to  Article 3(11),  the 
Commission  is  empowered  to  adopt  delegated  acts  in  accordance  with 
Article 12 to amend paragraph 1 of this Article and point (c) of Article 3(1) to 
allow for the issuance of the certificate of recovery on the basis of a  positive 
antigen  test,  antibody  test,  including  a  serological  test  for  antibodies  against 
SARS-CoV-2, or any other scientifically validated method. Such delegated acts 
shall also  amend point 3 of the Annex by  adding, modifying or removing the 
data fields falling under the categories of personal data referred to in points (b) 
and (c) of paragraph 2 of this Article.”; 

(6) 

in Article 12, paragraph 2 is replaced by the following: 

“2.  The  power  to  adopt  delegated  acts  referred  to  in  Article 5(2),  Article 6(2) 
and  Article 7(1)  and  (2)  shall  be  conferred  on  the  Commission  for  a  period 
of 24 months from 1 July 2021.”; 

(7) 

in Article 13, paragraph 2 is replaced by the following: 

“2. Either the European Parliament or the Council may object to a delegated act 
in  accordance  with  the  procedure  referred  to  in  Article 12(6).  In  such  a  case, 
the Commission shall repeal the act immediately following the notification of 
the decision to object by the European Parliament or by the Council.”; 

(8) 

in Article 17, the second paragraph is replaced by the following: 

“It shall apply from 1 July 2021 to 30 June 2023.”; 

(9) 

in the Annex, point 2(i) is replaced by the following: 

“(i) testing centre or facility (optional for antigen test);”. 

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15 

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

Article 3 

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

Done at Brussels, 

For the European Parliament 
The President 

For the Council 
The President 

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LEGISLATIVE FINANCIAL STATEMENT 

1. 

FRAMEWORK OF THE PROPOSAL/INITIATIVE  

1.1.  Title of the proposal/initiative  

1.2.  Policy area(s) concerned 

1.3.  Nature of the proposal/initiative  

1.4.  Objective(s)  

1.4.1  General objective(s) 

1.4.2  Specific objective(s) 

1.4.3  Expected result(s) and impact 

1.4.4  Indicators of performance 

1.5.  Grounds for the proposal/initiative  

1.5.1  Requirement(s)  to  be  met  in  the  short  or  long  term  including  a  detailed 
timeline for roll-out of the implementation of the initiative 

1.5.2  Added value of Union involvement 

1.5.3  Lessons learned from similar experiences in the past 

1.5.4  Compatibility  with  the  Multiannual  Financial  Framework  and  possible 
synergies with other appropriate instruments 

1.5.5  Assessment  of  the  different  available  financing  options,  including  scope  for 
redeployment 

1.6.  Duration and financial impact of the proposal/initiative  

1.7.  Management mode(s) planned  

2. 

MANAGEMENT MEASURES  

2.1.  Monitoring and reporting rules  

2.2.  Management and control system(s)  

2.2.1  Justification  of 
mechanism(s), the payment modalities and the control strategy proposed 

the  management  mode(s), 

funding 

the 

implementation 

2.2.2  Information  concerning the  risks identified and the internal control  system(s) 
set up to mitigate them 

2.2.3  Estimation and justification of the cost-effectiveness of the controls 

2.3.  Measures to prevent fraud and irregularities  

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3. 

ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE  

3.1.  Heading(s)  of  the  multiannual  financial  framework  and  expenditure  budget 
line(s) affected  

3.2.  Estimated financial impact of the proposal on appropriations  

3.2.1.Summary of estimated impact on expenditure  

3.2.2.Estimated output funded with operational appropriations  

3.2.3.Summary of estimated impact on administrative appropriations 

3.2.4.Compatibility with the current multiannual financial framework 

3.2.5.Third-party contributions  

3.3.  Estimated impact on revenue

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LEGISLATIVE FINANCIAL STATEMENT 

1. 

FRAMEWORK OF THE PROPOSAL/INITIATIVE  

1.1. 

Title of the proposal/initiative  

Proposal for a Regulation of the European Parliament and of the Council amending 
Regulation  (EU)  2021/953  on  a  framework  for  the  issuance,  verification  and 
acceptance  of  interoperable  COVID-19  vaccination,  test  and  recovery  certificates 
(EU  Digital  COVID  Certificate)  to  facilitate  free  movement  during  the  COVID-19 
pandemic. 

1.2. 

Policy area(s) concerned  

Free movement of persons within the European Union 

Recovery and Resilience 

1.3. 

Nature of the proposal/initiative  

 a new action  

 a new action following a pilot project/preparatory action36  

 the extension of an existing action  

 a merger or redirection of one or more actions towards another/a new action  

1.4. 

Objectives 

1.4.1.  General objective(s) 

The general objective of this Regulation is to extend, by 12 months, the application 
of  Regulation  (EU) 2021/953,  which  lays  down  a  framework  for  the  issuance, 
verification  and  acceptance  of  interoperable  COVID-19  vaccination,  test  and 
recovery certificates  (EU Digital  COVID Certificate) for the purpose of facilitating 
the holders’ exercise of their right to free movement during the COVID-19 pandemic 

1.4.2. 

Specific objective(s) 

Specific objective No 1 

To  continue  the  operations  and  maintenance  of  the  EU  Digital  COVID  Certificate 
trust framework established by Regulation (EU) 2021/953. 

1.4.3.  Expected result(s) and impact 

Specify the effects which the proposal/initiative should have on the beneficiaries/groups targeted. 

The  proposal  will  extend  the  operation  of  the  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  pandemic.  This  should  allow  EU  citizens 
and  their  family  members  exercising  their  right  to  free  movement  to  continue 
demonstrating  that  they  fulfil  public  health  requirements  imposed,  in  compliance 
with EU law, by the Member State of destination.  

36 

As referred to in Article 58(2)(a) or (b) of the Financial Regulation. 

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Support  will  be  provided  to  maintain  the  technological  infrastructure  necessary  for 
the EU Digital COVID Certificate framework. 

1.4.4. 

Indicators of performance 

Specify the indicators for monitoring progress and achievements. 

System in operation in 2022/2023 

The  Commission  should  ensure  that  the  EU-level  supporting  digital  infrastructure 
remains in place, as well as that it is operated and monitored effectively. 

1.5. 

Grounds for the proposal/initiative  

1.5.1.  Requirements  to  be  met  in  the  short  or  long  term  including  a  detailed  timeline  for 

roll-out of the implementation of the initiative 

The  EU  Digital  COVID  Certificate  framework  lays  out  the  format  and  content  of 
certificates on COVID-19 vaccination, testing and recovery. The EU Digital COVID 
Certificate  framework  ensures  that  these  certificates  are  issued  in  an  interoperable 
format  and  are  reliably  verified  when  presented  by  the  holder  in  other  Member 
States, thereby facilitating free movement within the EU. It will apply until 30 June 
2023.  

1.5.2.  Added  value  of  Union  involvement  (it  may  result  from  different  factors,  e.g. 
coordination gains, legal certainty, greater effectiveness or complementarities). For 
the purposes of this point 'added value of Union involvement' is the value resulting 
from  Union  intervention  which  is  additional  to  the  value  that  would  have  been 
otherwise created by Member States alone. 

Reasons  for  action  at  European  level  (ex-ante):  The  objectives  of  this  proposal, 
namely  to  facilitate  the  free  movement  within  the  EU  during  the  COVID-19 
pandemic  by  maintaining  a  secure  and  interoperable  system  to  issue  and  verify 
certificates  on  the  holder’s  vaccination,  testing  and  recovery  status,  cannot  be 
sufficiently achieved by the Member States independently but can rather, by reason 
of the scale and effects  of the action, be better achieved at  EU level.  Action  at  EU 
level is thus necessary. 

Expected generated Union added value (ex-post): The absence to act at EU level is 
likely  to  result  in  Member  States  adopting  different  systems,  resulting  in  citizens 
exercising  their  free  movement  rights  experiencing  problems  in  the  acceptance  of 
their documents in other Member States. In particular, it is necessary to continue to 
agree  on  the  technical  standards  to  be  used  to  ensure  interoperability,  security  and 
verifiability of the certificates being issued. 

1.5.3.  Lessons learned from similar experiences in the past 

This  is  a  continuation  of  an  existing  initiative  established  under  Regulation 
(EU) 2021/953. 

1.5.4.  Compatibility  with  the  Multiannual  Financial  Framework  and  possible  synergies 

with other appropriate instruments 

The Commission intends to support the continuation of urgent measures through EU 
Programmes,  in  this  particular  case,  via  the  Digital  Europe  Programme  (DEP). 
Financing is compatible with the Multiannual Financial Framework 2021-2027. The 

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Commission will take the appropriate initiative to ensure that resources are mobilised 
in due time. 

1.5.5.  Assessment  of  the  different  available  financing  options,  including  scope  for 

redeployment 

Financial support from the Union may cover the following actions:  

Operation and maintenance of EU-systems supporting interoperability 

The  Commission  will  use  funds  from  appropriation  under  the  DEP  to  support 
measures under the initiative.  

1.6. 

Duration and financial impact  

 limited duration  

–   The amended Regulation will apply until 30 June 2023. 

–   Financial impact from 2022 for commitment and payment appropriations.  

 unlimited duration 

1.7.  Management mode(s) planned37  

 Direct management by the Commission 

–   by its departments, including by its staff in the Union delegations;  

–    by the executive agencies  

 Shared management with the Member States  

 Indirect management by entrusting budget implementation tasks to: 

–   third countries or the bodies they have designated; 

–   international organisations and their agencies (to be specified); 

–   the EIB and the European Investment Fund; 

–   bodies referred to in Articles 70 and 71 of the Financial Regulation; 

–   public law bodies; 

–   bodies governed by private law with a public service mission to the extent that 

they provide adequate financial guarantees; 

–   bodies governed by the private law of a Member State that are entrusted with 
the  implementation  of  a  public-private  partnership  and  that  provide  adequate 
financial guarantees; 

–    persons  entrusted  with  the  implementation  of  specific  actions  in  the  CFSP 

pursuant to Title V of the TEU, and identified in the relevant basic act. 

– 

If more than one management mode is indicated, please provide details in the ‘Comments’ section. 

Comments  

None. 

37 

Details  of  management  modes  and  references  to  the  Financial  Regulation  may  be  found  on  the 
BudgWeb site: http://www.cc.cec/budg/man/budgmanag/budgmanag_en.html 

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2. 

MANAGEMENT MEASURES  

2.1.  Monitoring and reporting rules  

Specify frequency and conditions. 

Actions  receiving  financial  assistance  under  this  proposal  will  be  monitored 
regularly. 

2.2.  Management and control system(s)  

2.2.1. 

Justification of the management mode(s), the funding implementation mechanism(s), 
the payment modalities and the control strategy proposed  

Management mode 

The  actions  supporting  the  aims  of  the  Regulation  will  be  implemented  directly  as 
provided for by the Financial Regulation. 

The  Commission  shall  provide  any  support  required  and  duly  justified  for  the 
development  and  operations  of  any  needed  EU-level  interoperability  infrastructure. 
This  set-up  is  considered  the  most  appropriate  to  achieve  the  objectives  of  the 
Regulation  by  fully  taking  into  consideration  the  principles  of  economy,  efficiency 
and best value for money. 

Funding Instruments 

The actions to be funded to achieve the aims of the Regulation will be drawn from 
the Digital Europe Programme.  

Control strategies 

The control strategies will take into account the risk of the respective implementation 
mechanism and funding tools. 

For grants, the control strategy will be set up accordingly and will focus on three key 
stages of grant implementation, in accordance with the Financial Regulation: 

a.  The  organisation  of  calls  and  the  selection  of  proposals  that  fit  the  policy 
objectives of the Regulation, 

b.  Operational,  monitoring  and  ex-ante  controls  that  cover  project  implementation, 
public procurement, pre-financing, interim and final payments, 

c. Ex-post controls of projects and payments. 

2.2.2. 

Information concerning the risks identified and the internal control system(s) set up 
to mitigate them 

The key control functions foreseen for the programme include focusing on the policy 
objectives  while  taking  into  account  the  internal  control  objectives  (legality  and 
regularity,  control  efficiency  and  cost  effectiveness).  They  will  aim  to  ensure  the 
involvement  of  all  actors,  appropriate  budgetary  flexibility  and  consistent  ex-ante 
and ex-post controls and may be risk-differentiated. 

The  Commission’s  existing  internal  control  system  applies  to  ensure  that  funds 
available  under  the  Digital  Europe  Programme  are  used  properly  and  in  line  with 
appropriate legislation. 

The current system is setup as follows: 

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22 

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a.  The  internal  control  team  within  DG  CONNECT  focuses  on  compliance  with 
administrative procedures  and legislation in  force. The  Internal  Control Framework 
of the Commission is used for this purpose. Other Commission services involved in 
the implementation of the initiative will follow the same Control Framework, 

b. Regular audit of grants and contracts by external auditors, which will be awarded 
under this Regulation will be fully incorporated in annual audit plans, 

c. Evaluation of overall activities by external evaluators. 

Actions performed may be audited by the European Anti-Fraud Office (OLAF) and 
the Court of Auditors. 

2.2.3.  Estimation and justification of the cost-effectiveness of the controls (ratio of "control 
costs ÷ value of the related funds managed"), and assessment of the expected levels 
of risk of error (at payment & at closure)  

Estimated level of error 

The  aim  is  to  maintain  a  residual  error  rate  under  2%  threshold  for  all  spending 
related to the implementation of the measures to achieve the aim of the Regulation, 
while  limiting  the  control  burden  for  Member  States  to  achieve  the  right  balance 
between  the  legality  and  regularity  objective  with  other  objectives  like  the 
effectiveness of the EU Digital COVID Certificate framework. 

2.3.  Measures to prevent fraud and irregularities  

Specify existing or envisaged prevention and protection measures, e.g. from the Anti-Fraud Strategy. 

DG CONNECT is determined to fight against fraud at all stages of the management 
process. The DG has developed and implements a comprehensive anti-fraud strategy 
covering  all  major  business  activities  and  fraud  risks  identified.  This  includes  an 
enhanced use of intelligence using advanced IT tools (notably in grant management) 
and  continuous  training  and  information  for  staff.  Overall  the  entire  set  of  control 
measures proposed also aims for a positive impact on the fight against fraud.  

The legislation will ensure that key controls such as audits and/or on-the-spot checks 
can be carried out by the Commission services, including OLAF, using the standard 
provisions recommended by OLAF. 

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3. 

3.1. 

ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE  

Heading(s)  of  the  multiannual  financial  framework  and  expenditure  budget 
line(s) affected  

  Existing budget lines  

In order of multiannual financial framework headings and budget lines. 

Heading of 
multiannual 
financial 
framework 

Number  

Budget line 

Type of  
expenditure 

Contribution  

Diff./Non-
diff.38 

from 
EFTA 
countries39 

from 
candidate 
countries40 

from third 
countries 

within the 
meaning of 
Article 21(2)(b) of 
the Financial 
Regulation  

01 

02 04 Digital Europe Programme 

Diff 

YES 

YES (if 
specified 
in the 
annual 
work 
program
me) 

Part of 
the 
Progra
mme 

NO 

38 
39 
40 

Diff. = Differentiated appropriations / Non-diff. = Non-differentiated appropriations. 
EFTA: European Free Trade Association.  
Candidate countries and, where applicable, potential candidates from the Western Balkans. 

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3.2. 

Estimated impact on expenditure  

3.2.1. 

Summary of estimated impact on expenditure  

–    The proposal/initiative does not require the use of operational appropriations  

–    The proposal/initiative requires the use of operational appropriations, as explained below: 

EUR million (to three decimal places) 

Heading of multiannual financial  
framework  

01 

Single Market, Innovation and Digital 

DG CONNECT 

 Operational appropriations  

02 04 Digital Europe Programme41 

TOTAL appropriations 
for DG CONNECT under Heading 1 

Commitments 

Payments 

Commitments 

Payments 

(1a) 

(2a) 

=1a 

=2a 

 TOTAL operational appropriations  

TOTAL appropriations  
under HEADING 01 
of the multiannual financial framework 

Commitments 

Payments 

Commitments 

Payments 

(4) 

(5) 

=4 

=5 

Year 
2022 

Year 
2023 

Year 
2024 

TOTAL 

3,000 
3,000 

3,000 

3,000 

3,000 

3,000 

3,000 

3,000 

4,000 
4,000 

4,000 

4,000 

4,000 

4,000 

4,000 

4,000 

7,000 
7,000 

7,000 

7,000 

7,000 

7,000 

7,000 

7,000 

41 
Amounts earmarked in 2022 under the Digital Europe Programme are indicated for information as they are already covered under the Legislative Financial Statement 
of the 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.  2023  appropriations  are 
subject to the approval of the 2023 budget, the DEP work programme and the adoption of the corresponding financing decision. 

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Heading of multiannual financial  
framework  

7 

‘Administrative expenditure’ 

Year 
2022 

Year 
2023 

Year 
2024 

TOTAL 

EUR million (to three decimal places) 

DGs CONNECT + JUST + SANTE + DIGIT 

 Human resources  
 Other administrative expenditure  

TOTAL DGs CONNECT + JUST + 
SANTE + DIGIT 

1,501 

1,501 

Appropriations  

1,501 

1,501 

3,002 

3,002 

TOTAL appropriations 
under HEADING 7 
of the multiannual financial framework  

(Total  commitments  = 
Total payments) 

1,501 

1,501 

3,002 

Year 
2022 

Year 
2023 

Year 
2024 

TOTAL 

EUR million (to three decimal places) 

TOTAL appropriations  
under HEADINGS 1 to 7 
of the multiannual financial framework  

Commitments 

Payments 

4,501 

4,501 

5,501 

5,501 

10,002 

10,002 

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3.2.2.  Estimated output funded with operational appropriations  

Indicate 
objectives and 
outputs  

 

Type42 

Avera
ge 
cost 

2022 

2023 

2024 

2025 

Enter as many years as necessary to show the 
duration of the impact (see point 1.6) 

TOTAL 

OUTPUTS 

Commitment appropriations in EUR million (to three decimal places). 

o
N

Cost 

o
N

Cost 

o
N

Cost 

o
N

Cost 

o
N

Cost  N

o

Cost 

o
N

Cost 

Total 
No 

Total 
cost 

SPECIFIC OBJECTIVE No 1 
To continue the operations and maintenance of the EU Digital COVID Certificate trust framework established by Regulation (EU) 2021/953 
Operations and maintenance of the trust 
framework 

1 

3,000 

4,000 

Subtotal for specific objective No 1 

3,000 

4,000 

TOTALS 

3,000 

4,000 

7,000 

7,000 

7,000 

42 

Outputs are products and services to be supplied (e.g.: number of student exchanges financed, number of km of roads built, etc.). 

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3.2.3. 

Summary of estimated impact on administrative appropriations  

–    The  proposal/initiative  does  not  require  the  use  of  appropriations  of  an 

administrative nature  

–    The proposal/initiative requires the use of appropriations of an administrative 

nature, as explained below: 

EUR million (to three decimal places) 

Year 
2022 

Year 
2023 

Year 
2024 

TOTAL 

HEADING 7 
of the multiannual financial 
framework 

Human resources  

1,501 

1,501 

3,002 

1,501 

1,501 

3,002 

Other administrative expenditure  

Subtotal HEADING 7 
of the multiannual financial 
framework  

Outside HEADING 743 
of the multiannual financial 
framework  

Human resources  

Other expenditure  
of an administrative nature 

Subtotal  
outside HEADING 7 
of the multiannual financial 
framework  

TOTAL 

1,501 

1,501 

3,002 

The  appropriations  required  for  human  resources  and  other  expenditure  of  an  administrative  nature  will  be  met  by 
appropriations from the DGs that are already assigned to management of the action and/or have been redeployed within the 
DGs,  together  if  necessary  with  any  additional  allocation  which  may  be  granted  to  the  managing  DGs  under  the  annual 
allocation procedure and in the light of budgetary constraints. 

43 

Technical  and/or  administrative  assistance  and  expenditure  in  support  of  the  implementation  of 
EU programmes and/or actions (former ‘BA’ lines), indirect research, direct research. 

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3.2.3.1.  Estimated requirements of human resources  

–    The proposal/initiative does not require the use of human resources.  

–    The  proposal/initiative  requires  the  use  of  human  resources,  as  explained 

below: 

Estimate to be expressed in full time equivalent units (FTE) 

Year 
2022 

Year 
2023 

Year 
2024 

Year 
2025 

Enter as many years as 
necessary to show the duration 
of the impact (see point 1.6) 

 Establishment plan posts (officials and temporary staff) 

20 01 02 01 (Headquarters and Commission’s Representation 
Offices) 

9 

9 

20 01 02 03 (Delegations) 

01 01 01 01  (Indirect research) 

 01 01 01 11 (Direct research) 

Other budget lines (specify) 

 External staff (in Full Time Equivalent unit: FTE)44 

20 02 01 (END) 

1 

1 

20 02 03 (AC, AL, END, INT and JPD in the delegations) 

XX 01  xx yy zz  45 

- at Headquarters 

- in Delegations  

01 01 01 02 (AC, END, INT - Indirect research) 

 01 01 01 12 (AC, END, INT - Direct research) 

Other budget lines (specify) 

TOTAL 

10 

10 

XX is the policy area or budget title concerned. 

The human resources required will be met by staff from the DGs who are already assigned to management of the 
action and/or have been redeployed  within the DGs, together if  necessary  with any  additional allocation which 
may  be  granted  to  the  managing  DGs  under  the  annual  allocation  procedure  and  in  the  light  of  budgetary 
constraints. 

Description of tasks to be carried out: 

Officials and temporary staff 

Staff  will  be  entrusted  with  the  development,  monitoring  and  implementation  of  this 
Regulation,  the  technical  specifications  adopted  on  its  basis,  the  monitoring  of  the 
technical implementation (via framework contract and grants) as well as the support to 
Member States for the development of their national applications. 

External staff 

44 

45 

AC=  Contract  Staff;  AL  =  Local  Staff;  END=  Seconded  National  Expert;  INT  =  agency  staff; 
JPD= Junior Professionals in Delegations.  
Sub-ceiling for external staff covered by operational appropriations (former ‘BA’ lines). 

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3.2.4.  Compatibility with the current multiannual financial framework  

The proposal/initiative: 

–    can  be  financed  through  redeployment  within  the  relevant  headings  of  the 

Multiannual Financial Framework (MFF). 

The Digital Europe Programme will finance the costs of this initiative  

–    requires use of the unallocated margin under the relevant heading of the MFF 

and/or use of the special instruments as defined in the MFF Regulation. 

–    requires a revision of the MFF. 

3.2.5.  Third-party contributions  

The proposal/initiative: 

–    does not provide for co-financing by third parties 

–    provides for the co-financing by third parties estimated below: 

Appropriations in EUR million (to three decimal places) 

Year 
N1 

Year 
N+1 

Year 
N+2 

Year 
N+3 

Enter as many years as 
necessary to show the 
duration of the impact (see 
point 1.6) 

Total 

Specify 
the 
financing body  

co-

TOTAL appropriations 
co-financed  

1 

Year N is the year in which implementation of the proposal/initiative starts. Please replace "N" by the 
expected first year of implementation (for instance: 2021). The same for the following years. 

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3.3. 

Estimated impact on revenue  

–    The proposal/initiative has no financial impact on revenue. 

–    The proposal/initiative has the following financial impact: 

 

 

on own resources  

on other revenue 

please indicate, if the revenue is assigned to expenditure lines  

Appropriations 
available for 
the current 
financial year 

Budget revenue line: 

Article …………. 

     EUR million (to three decimal places) 

Impact of the proposal/initiative2 

Year 
N 

Year 
N+1 

Year 
N+2 

Year 
N+3 

Enter as many years as necessary 
to show the duration of the impact 
(see point 1.6) 

For assigned revenue, specify the budget expenditure line(s) affected. 

Other  remarks  (e.g.  method/formula  used  for  calculating  the  impact  on  revenue  or  any  other 
information). 

2 

As regards traditional own resources (customs duties, sugar levies), the amounts indicated must be net 
amounts, i.e. gross amounts after deduction of 20 % for collection costs. 

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