Proposal for a COUNCIL RECOMMENDATION on joining the global digital health certification network established by the World Health Organization and on temporary arrangements to facilitate international travel in view of the expiry of Regulation (EU) 2021/953 of the European Parliament and of the Council
Date: 2023-06-05
Institutions: Directorate-General for Mobility and Transport, European Commission
Subjects: EU national, World Health Organisation, coronavirus disease, e-Health, epidemic, external border of the EU, free movement of persons, health certificate, health control, international cooperation

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   EUROPEAN COMMISSION  Brussels, 5.6.2023  COM(2023) 296 final  Proposal for a COUNCIL RECOMMENDATION on joining the global digital health certification network established by the World Health Organization and on temporary arrangements to facilitate international travel in view of the expiry of Regulation (EU) 2021/953 of the European Parliament and of the Council (Text with EEA relevance)  
 
EXPLANATORY MEMORANDUM 

1. 

• 

CONTEXT OF THE PROPOSAL 

Reasons for and objectives of the proposal 

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 pandemic1, has been a crucial element in Europe’s response 
to  the  COVID-19  pandemic.  Its  rapid  adoption  and  rollout  enabled  Union  citizens  to  move 
freely  and  safely  during  the  pandemic,  and  the  European  travel  sector  to  open  in  time  for 
summer 2021.  

The  EU  Digital  COVID  Certificate  has  proven  to  be  a  major  success  in  Europe’s  efforts  to 
address  and  mitigate  the  impact  of  the  COVID-19  pandemic  on  societies  and  economies.  It 
rapidly  became  the  standard  for  Europe  and  beyond,  with  51  third  countries  and  territories 
connected  to  the  system2  in  addition  to  the  27  Member  States3.  With more  than  two  billion 
certificates  issued,  the  EU  Digital  COVID  Certificate  has  delivered  major  benefits  for  EU 
citizens and residents. It facilitated free movement within the Union when travel restrictions 
were  deemed  necessary  due  to  the  pandemic  and  it  also  allowed  the  coordinated  lifting  of 
these  restrictions  once  possible.  Through  its  external  dimension,  the  EU  Digital  COVID 
Certificate  has  also  proven  to  be  the  most  widely  used  solution  and  tool  to  foster  safe 
international travel and recovery at global level. All third countries and territories which issue 
certificates  covered  by  a  Commission  decision  pursuant  to  Articles  3(10)  or  8(2)  of 
Regulation  (EU)  2021/953  accept  EU  Digital  COVID  Certificates  when  requiring  incoming 
travellers to prove their COVID-19 vaccination, testing or recovery status. 

In  June  2022,  the  co-legislators  extended  Regulation  (EU)  2021/953  by  one  year  to  ensure 
that  travellers  could  continue  using  their  certificates  should  a  significant  worsening  of  the 
epidemiological  situation  have  made  it  necessary  for  Member  States  to  temporarily 
reintroduce travel restrictions within the EU.  

Regulation (EU) 2021/953 is set to expire on 30 June 2023. Given the current absence of any 
intra-EU travel  restrictions,  and taking into account  that the epidemiological  context  led  the 
World  Health  Organization  (WHO)  to  declare  the  end  of  the  COVID-19  as  a  public  health 

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3 

OJ  L  211,  15.6.2021,  p.  1.  This  Regulation  is  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),  which  extends  the  EU 
Digital COVID Certificate framework to third-country nationals who are legally staying or residing in a 
Member  State’s  territory,  and  who  are  entitled  to  travel  to  other  Member  States  in  accordance  with 
Union law. 
Connection of such third countries to the  interoperability gateway of the trust framework set up under 
Regulation (EU) 2021/953 (the ‘EU Gateway’) results from decisions issued by the Commission under 
Articles 3(10) or 8(2) of that Regulation.  These Commission decisions  are not a  legal basis  for using 
EU certificates in a third country (or to travel to a third country). 
Given  its  relevance  to  the  Agreement  on  the  European  Economic  Area,  the  EU  Digital  COVID 
Certificate  Regulation  has  been  incorporated  in  that  agreement  and  as  such  it  also  applies  to  Iceland, 
Liechtenstein  and  Norway  (Decision  of  the  EEA  Joint  Committee  No  187/2021  of  30  June  2021 
amending Annex V (Free movement of workers) and Annex VIII (Right of establishment) to the EEA 
Agreement (OJ L 124, 8.5.2008, p. 20)).  

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emergency  of  international  concern  on  5  May  2023, the  Regulation  can  no  longer  serve  its 
declared objective and, as a result, its extension would not be justified. 

The success of the EU Digital COVID Certificate in allowing free movement and travel even 
in  the  difficult  circumstances  of  the  pandemic  holds  lessons  for  the  future.  The  Union  has 
made it a priority to develop the policies and tools necessary to be better prepared for future 
health crises. The benefits of using digital solutions to mitigate the impact of  communicable 
diseases  on  the  ability  of  citizens  and  businesses  to  travel  is  a  central  pillar  of  this 
preparedness4. The benefits of such preparedness are now being taken up at the global level. 

In  this  respect,  the  WHO  is  developing  a  global  digital  health  certification  network,  which 
takes up the EU Digital COVID Certificate trust framework, principles and open technologies 
under its own structure. To ensure that certificates used worldwide continue to be verifiable 
when  needed  even  after  the  expiry  of  Regulation  (EU)  2021/953,  Member  States  should  be 
encouraged  to  join  the  WHO  global  digital  health  certification  network  as  soon  as  it  is 
available  to  support  the  use  of  the  European  technology  and  specifications  for  COVID-19 
certificates in a global infrastructure. 

On  20  December  2022,  the  Council  adopted  conclusions  calling  on  the  Commission  to 
“explore  the  added  value  of  a  digital  version  of  vaccination  certificates,  taking  into 
consideration  the  experiences  with  European  digital  infrastructures  and  other  existing  tools, 
such as the International Certificate of Vaccination or Prophylaxis”5. The global digital health 
certification network being established by the WHO, with the EU Digital COVID Certificate 
trust framework at its core, is being designed to enable global interoperability and verification 
of  such  certificates.  It  should  therefore  provide  a  global  solution  to  the  call  made  in  the 
Council conclusions. 

The  WHO  global  digital  health  certification  network  will  also  provide  an  important 
opportunity to use the experience gained during the COVID-19 pandemic to help mitigate the 
impact  of  future  health  crises.  Its  further  development  could  be  expected  to  allow  Member 
States to be involved in the issuance, acceptance, verification, as well as the use of the global 
digital  health  certification  network  for  the  digitalisation  of  the  International  Certificate  of 
Vaccination  and  Prophylaxis,  if  this  is  confirmed  by  the  adoption  of  amendments  to  the 
International Health Regulation (IHR)6. The WHO global digital health certification network 
might  also  be  used  to  support  the  digitalisation  and  certification  of  authenticity  of  routine 
immunisation records as well as other future use cases in digital health. Such possible future 
developments  –  building  on  the  lessons  learned  of  the  COVID-19  pandemic  and  the 
international success of the EU Digital COVID Certificate – would be major contributions to 
the global health agenda. 
In the very short term, a limited number of countries around the globe7 still require proof of 
COVID-19  vaccination,  test  and/or  recovery  as  conditions  for  entry.  Situations  whereby  a 
Union  citizen  or  resident  is  requested  to  show  a  COVID  certificate  in  a  third  country  and 
cannot  easily  provide  one  because  the  EU  Digital  COVID  Certificate  system  is  no  longer 

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7 

Recommendation 3 – Prepare relevant EU tools for future crises: European Court of Auditors  Special 
report 01/2023: "Tools facilitating travel within the EU" (europa.eu) 
Conclusions on vaccination as one of the most effective tools for preventing disease and improving 
public health (OJ C 484/18, 20.12.2022, p. 18) 
Report of the Review Committee regarding amendments to the International Health Regulations (2005). 
6 February 2023 https://apps.who.int/gb/wgihr/pdf_files/wgihr2/A_WGIHR2_5-en.pdf  
As of May 2023, it appears that three countries connected to the EU Gateway still have some COVID-
related  restrictions  in  place  (Indonesia,  the  Philippines  and Togo).  Outside  of  the  EU  Digital  COVID 
Certificate context, China also continues to keep testing requirements in place. 

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functional  should  be  avoided,  as  this  would  represent  a  limitation  to  international  travel  by 
any means of transport. It is currently difficult to assess for how long these countries maintain 
such  COVID-19  related  entry  requirements,  including  beyond  1  July  2023.  As  it  remains 
uncertain how the epidemiological situation develops, it can also not be excluded that some 
countries  among the 51  third countries and territories currently  connected to  the  EU Digital 
COVID  Certificate  could  re-impose  travel  requirements,  while  also  other  countries  outside 
this system could keep or re-impose specific entry requirements.  

It  is  therefore  desirable  that  Union  citizens  and  residents  travelling  outside  of  the  Union 
continue  to  have  at  their  disposal  means  to  prove  their  COVID-19  related  status,  whenever 
specifically requested for travel  outside the Union beyond 1 July 2023.  Furthermore,  Union 
citizens  and  residents  should  benefit  from  the  availability  of  such  certificates  for  ensuring 
continuity of care. 

In practice, EU Digital COVID certificates have not only been used for travel purposes, but 
also  by  health  services,  for  the  purposes  of  continuity  of  care,  such  as  cross-border 
vaccination. Vaccination certificates issued by one Member State showing past vaccination(s) 
could, for instance, be used by health workers in another Member State or a third country in 
order  to  administer  a  consequent  dose.  Similarly,  certificates  of  recovery  have  also  been 
useful to provide information about a previous COVID-19 infection. 

In addition, as a resurgence of COVID-19 cases or an outbreak of another disease cannot be 
ruled out in any part of the world, one or several Member States could in the future introduce 
new, public health measures limiting the entry into their territory of persons travelling from 
third countries. To ensure that the public health concerns that would justify such measures are 
adequately addressed, Member States should be able to continue relying on certificates issued 
by  third  countries  in  compliance  with  the  technology  and  the  standards  underlying  the  EU 
Digital COVID Certificate system.  

It is therefore desirable that, if Member States introduce such general public health measures 
as  a  result  of  a  resurgence  of  COVID-19  cases8,  they  have  the  necessary  framework  to 
continue accepting certificates issued by third countries whose systems are interoperable with 
the EU Digital COVID Certificate.  

It is important to ensure a smooth transition for Member States from the connection to the EU 
Gateway established at the core of the EU Digital COVID Certificate trust framework to  the 
connection to the WHO global digital health certification network. Therefore, the two systems 
could operate in parallel for a limited period of time (3 months). To ensure the verifiability of 
EU Digital COVID Certificates during the transition period, the public keys of countries and 
territories,  connected  to  the  EU  Gateway  will  be  made  available  in  the  WHO  global  digital 
health certification network. To that end, it is proposed that Member States be encouraged to 
renew their public keys prior to 30 June 2023, and, after connection to the WHO global digital 
health certification network, to keep both systems synchronised until 30 September 2023.  In 
this respect, the Commission intends to continue financing the  operation of the EU gateway 
through the Digital Europe Programme for the transitional period. 

• 

Consistency with existing policy provisions in the policy area 

In  view  of  the  expiry  of  Regulation  (EU)  2021/953  of  the  European  Parliament  and  of  the 
Council,  the  proposed  recommendation  serves  to  facilitate  and  remove  barriers  to 

8 

On  the  recommended  approach  should  this  become  necessary,  see  Council  Recommendation  (EU) 
2022/2548 of 13 December 2022 on a coordinated approach to travel to the Union during the COVID-
19 pandemic and replacing Council Recommendation (EU) 2020/912 (OJ L 328, 22.12.2022, p. 146) 

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international travel. and to promote Member State readiness, should it become necessary for 
them to impose public health measures on the  entry into their territory of persons travelling 
from third countries following the approach recommended in Council Recommendation (EU) 
2022/2548. 

At the same time, the proposed recommendation contributes to ensuring continuity of care in 
cross-border contexts (including with third countries) and preventing the spread of COVID-19 
by  encouraging  the  continued  issuance  of  COVID-19  certificates  after  the  expiry  of 
Regulation (EU) 2021/953 on 30 June 2023.  

• 

Consistency with other Union policies 

This recommendation is in line with other Union policies, including those regarding external 
relations. 

On  3  May  2022,  the  Commission  published  a  proposal  for  a  Regulation  on  the  European 
Health  Data  Space9,  Article  13  of  which  proposes  a  possibility  to  provide  supplementary 
services through MyHealth@EU that facilitate the exchange or verification of digital  health 
certificate  systems.  These  supplementary  services  should  strive  for  interoperability  with 
systems established at international level. This Recommendation follows the same aim. 

2. 

• 

LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY 

Legal basis 

The  proposal  is  based  on  Article  168(6)  of  the  Treaty  on  the  Functioning  of  the  European 
Union (TFEU), which provides a basis for adopting Council recommendations in the field of 
public  health,  and  Article  292  TFEU  together  with  Articles  91  and  100(2)  TFEU,  which 
provide a basis for adopting Council recommendations in the field of transport. 

The achievement of a high level  of human health protection will benefit  from  the measures 
recommended  relating  to  the  acceptance  of  COVID-19  vaccination,  test  or  recovery 
certificates  from  third  countries  and  to  the  connection  to  the  WHO  global  digital  health 
certification network. These measures contribute to addressing public health preparedness in 
case of a resurgence of COVID-19 cases. 

Moreover,  international  travel  and  the  smooth  provision  of  international  transport  services 
thanks  to  the  continuous  availability  of  COVID-19  certificates,  even  after  the  expiry  of 
Regulation  (EU)  2021/953,  would  be  facilitated  if  Member  States  take  a  coordinated 
approach, as proposed in this proposal for a recommendation. 

• 

Subsidiarity  

A  consistent  approach  regarding  the  continuous  possibility  to  issue  COVID-19  certificates 
when needed would benefit Union citizens or residents as well as transport operators. Joining 
the  WHO  global  digital  health  certification  network  would  provide  a  common  solution  to 
continue  issuing  COVID-19  certificates.  Participation  in  the  WHO  global  digital  health 
certification network would contribute to the global alignment of health certificate standards 
and establishment of a system for the recognition of digital health certificates for international 
travel and continuity of care. 

9 

Proposal for a Regulation of the European Parliament and of the Council on the European Health Data 
Space (COM/2022/197 final) 

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• 

Proportionality 

The present proposal takes account of the imminent expiry of Regulation (EU) 2021/953 and 
of the concurrent  need to  ensure that  EU citizens and residents  travelling outside of the EU 
continue to have at their disposal means to prove their COVID-19 related status, as well as to 
contribute to  a  coordinated approach  to  certificates  that are still issued by  third  countries in 
compliance with the specifications laid down in accordance with that Regulation. Therefore, 
the proposal is suitable for achieving the intended objectives and does not go beyond what is 
necessary and proportionate. 

RESULTS 
CONSULTATIONS AND IMPACT ASSESSMENTS 

EX-POST 

EVALUATIONS, 

OF 

STAKEHOLDER 

Ex-post evaluations/fitness checks of existing legislation 

3. 

• 

n.a. 

• 

Stakeholder consultations 

This proposal takes into account previous discussions with Member States, in the context of 
the  implementation  of  Regulation  (EU)  2021/953.  No  impact  assessment  was  undertaken 
though  the  proposal  takes  into  account  the  evolving  measures  taken  by  third  countries  as 
regards the conditions for entry into their territory in the context of the COVID-19 pandemic, 
and all available relevant evidence.  

• 

Fundamental rights 

This  proposed  Council  Recommendation  respects  the  fundamental  rights  and  observes  the 
principles recognised by the Charter of Fundamental Rights of the European Union, notably 
the right to the protection of personal data, laid down in Article 8. 

4. 

BUDGETARY IMPLICATIONS 

None. 

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Proposal for a 

COUNCIL RECOMMENDATION 

on joining the global digital health certification network established by the World 
Health Organization and on temporary arrangements to facilitate international travel in 
view of the expiry of Regulation (EU) 2021/953 of the European Parliament and of the 
Council 

(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 168(6), and Article 292 in conjunction with Article 91 and Article 100(2), thereof, 

Having regard to the proposal from the European Commission, 

Whereas: 

(1) 

(2) 

(3) 

(4) 

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The  EU  Digital  COVID  Certificate  introduced  by  Regulation  (EU)  2021/953  of  the 
European  Parliament  and  of  the  Council10  has  rapidly  become  a  global  standard  for 
vaccination,  test  and  recovery  certificates,  with  51  third  countries  and  territories 
connected  to  the  system  in  addition  to  the  27  Member  States.  Through  its  external 
dimension, the EU Digital COVID Certificate has also proven to be the most widely 
used solution and tool to foster safe international travel and recovery at global level. In 
addition  to  travel,  the  use  of  digital  COVID  certificates  fostered  the  continuity  of 
cross-border vaccination.  

The EU Digital COVID Certificate was paramount in safeguarding free movement and 
travel and its underlying technology could continue to serve as a tool, necessary to be 
better  prepared  for  possible  future  health  crises,  allowing  citizens  and  business  to 
mitigate the impact of communicable diseases and ensure a proper preparedness. This 
is also in line with the special report of the European Court of Auditors11.  

Regulation (EU) 2021/953 is set to expire on 30 June 2023. 

The  World  Health  Organization  (WHO)  will  establish  a  global  digital  health 
certification network. The global digital health certification network is a mechanism to 
support  the  verification  of  certificates  that  are  issued  by  participants  of  the  global 
digital health certification network. Such certificates would initially concern COVID-
19  certificates,  and  could,  at  a  later  stage,  also  include  certification  of  other 
documents, such as routine immunisation  records and the  International  Certificate of 

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). 

11 
facilitating travel within the EU" (europa.eu) 

Recommendation  3  –  Prepare  relevant  EU  tools  for  future  crises:  Special  report  01/2023:  "Tools 

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(5) 

(6) 

(7) 

(8) 

Vaccination  or  Prophylaxis  for  the  purposes  of  international  travel  and  continuity  of 
care. 

The establishment of systems to mitigate the impact of global health crises on travel 
for citizens and businesses should be seen as a major pillar of the EU’s preparedness 
agenda.  Participation  in  the  WHO  global  digital  health  certification  network  would 
contribute to the global alignment of health certificate standards and establishment of a 
system  for  the  recognition  of  digital  health  certificates  for  international  travel  and 
continuity of care.  

The global digital health certification network being developed by the WHO takes up 
the EU Digital COVID Certificate trust framework, principles and open technologies 
under its own structure. Member States should be encouraged to connect to the WHO 
global  digital  health  certification  network  as  soon  as  possible  before  30  September 
2023, provided that it complies with the technical specifications issued in accordance 
with Regulation (EU) 2021/953. For a smooth transition from the EU Digital COVID 
Certificate  system  to  the  WHO  global  digital  health  certification  network,  Member 
States should be invited to issue new digital signer certificates used for the issuance of 
the EU Digital COVID Certificates before the expiry of Regulation (EU) 2021/953 to 
ensure their maximum technical validity and register these in the EU Gateway.  

The Commission intends to ensure a smooth transition for Member States to join the 
WHO global digital health certification network, by maintaining the EU Gateway until 
30 September 2023 in a manner that supports the objectives of this Recommendation. 
To that end, the Commission intends to finance the EU Gateway through the Digital 
Europe  Programme  established  by  Regulation  (EU)  2021/694  of  the  European 
Parliament  and  of  the  Council12.  This  should  allow  the  Member  States  and  third 
countries  connected  to  the  EU  Gateway  sufficient  time  to  adopt  the  procedures 
necessary to onboard the WHO global digital health certification network.  

All  Union  citizens  and  residents  travelling  outside  the  Union  should  have  at  their 
disposal means to prove their COVID-19 related status, whenever this is specifically 
requested  for  travelling  outside  of  the  Union.  The  absence  of  such  means  of  proof 
could  reduce  the  willingness  and  ability  of  Union  passengers  to  travel  to  certain 
destinations, which in turn could have a negative impact on the provision of transport 
services.  Moreover,  unequal  conditions  for  the  issuance  of  such  certificates  between 
the  Member  States  could  affect  fair  competition  between  transport  operators  if 
international travel  from certain Member States is less cumbersome because relevant 
COVID-19  certificates  are  easily  accessible.  Therefore,  once  connected  to  the  WHO 
global  digital  health  certification  network,  Member  States  should  also  be  invited  to 
issue,  upon  request,  certificates  in  the  format  compatible  with  the  technical 
specifications  laid  down  in    Commission  Implementing  Decision  (EU)  2021/107313, 
for the purposes of facilitating international travel by any means of transport to third 
countries  requiring  such  certificates.  In  addition  to  facilitating  international  travel, 
such issuance could  contribute to  the global alignment of health certificate standards 

12 
the Digital Europe Programme and repealing Decision (EU) 2015/2240 (OJ L 166, 11.5.2021, p. 1). 

Regulation (EU) 2021/694 of the European Parliament and of the Council of 29 April 2021 establishing 

13 

Commission  Implementing  Decision  (EU)  2021/1073  of  28 June  2021  laying  down  technical 
specifications  and  rules  for  the  implementation  of  the  trust  framework  for  the  EU  Digital  COVID 
Certificate established by Regulation (EU) 2021/953 of the European Parliament and of the Council (OJ 
L 230, 30.6.2021, p. 32). 

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and  the  development  of  a  system  for  the  recognition  of  digital  health  certificates 
facilitating the continuity of care. 

(9)  Member States should issue such certificates, including during the transitional period, 
in a digital or paper-based format, or both. The prospective holders should be entitled 
to receive the certificates in the format of their choice. The information contained in 
the  certificates  should  also  be  shown  in  human-readable  form  and  be  provided  in  at 
least the official language or languages of the issuing Member State and in English. 

(10)  The  uptake  of  the  EU  Digital  COVID  Certificate  by  the  WHO  global  digital  health 
certification network should enable third countries which still have in place COVID-
19  related  requirements  as  conditions  for  entry  in  their  territories,  and  which  are 
connected  to  the  interoperability  gateway  of  the  trust  framework  set  up  under 
Regulation (EU) 2021/953 (the ‘EU Gateway’),  to accept and verify both certificates 
issued before and after 1 July 2023.  

(11)  Situations  whereby  a  Union  citizen  or  resident  is  requested  to  show  a  COVID-19 
certificate  by  a  third  country  and  cannot  easily  provide  one  because  the  EU  Digital 
COVID Certificate system is not functional should be avoided, as this would represent 
a limitation to international travel by any means of transport.  

(12)  From the perspective of travellers to the Union, as a resurgence of COVID-19 cases or 
an  outbreak  of  another  disease  cannot  be  ruled  out  in  any  part  of  the  world,  one  or 
several  Member  States  could  in  the  future  introduce  new,  public  health  measures 
limiting the entry into their territory of persons travelling from third countries. While 
any  such  restrictions  should  be  applied  in  accordance  with  the  general  principles  of 
proportionality  and  non-discrimination,  they  could  be  justified  on  public  interest 
grounds, namely the safeguarding of public health.  To ensure that such public health 
concerns  can  be  adequately  addressed,  Member  States  should  continue  to  be  able  to 
accept  and  verify  certificates  issued  by  third  countries  in  compliance  with  the  high 
standards  currently  laid  down  in  Regulation  (EU)  2021/953.  Where  Member  States 
require proof of COVID-19 vaccination, test or recovery in order to waive restrictions 
to travel into the Union, they should accept proofs of COVID-19 vaccination, recovery 
or  testing  previously  covered  by  an  implementing  act  adopted  pursuant  to  Article 
3(10) or Article 8(2) of Regulations (EU) 2021/953, in line with the approach set out 
in Council Recommendation (EU) 2022/254814.  

(13)  As the issuance of appropriate, interoperable certificates can contribute to facilitating 
international travel to certain third countries by any means of transport, Member States 
should be invited to ensure, including during the transitional period, that cross-border 
passenger transport service operators required to implement COVID-19 related public 
health  measures  integrate  the  verification  of  such  certificates  into  the  operation  of 
cross-border  transport  infrastructures,  such  as  airports,  ports  and  railway  and  bus 
stations, where appropriate.  

(14)  The Council called on the Commission to “explore the added value of a digital version 
of  vaccination  certificates,  taking  into  consideration  the  experiences  with  European 
digital infrastructures and other existing tools, such as the International Certificate of 
Vaccination or Prophylaxis”15. Similar developments are planned by the WHO, which 

14 

15 

Council Recommendation (EU) 2022/2548 of 13 December 2022 on a coordinated approach to travel to 
the Union during the COVID-19 pandemic and replacing Council Recommendation (EU) 2020/912 (OJ 
L 328, 22.12.2022, p. 146). 
Conclusions on vaccination as one of the most effective tools for preventing disease and improving 

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intends  to  further  develop  the  WHO  global  digital  health  certification  network,  in 
order  to,  for  example,  support  the  digitisation  of  International  Certificate  of 
Vaccination  and  Prophylaxis,  or  vaccination  certificates  for  routine  immunisation. 
Therefore, the Member States should be invited to actively participate in the effort to 
further  develop  the  network,  as  well  as  to  issue,  accept  and  verify  other  types  of 
vaccination certificates or health data, as relevant. 

(15)  During a transitional period until 30 September 2023, and in order to ensure a smooth 
transition to the WHO global digital health certification network, Member States who 
have not yet connected to the WHO global digital health certification network should 
continue to issue, upon request, COVID-19 vaccination, test and recovery certificates 
in  the  format  compatible  with  the  technical  specifications  laid  down  in  Commission 
Implementing Decision (EU) 2021/107316. Also, during this transitional period, where 
Member  States  require  proof  of  COVID-19  vaccination,  test  or  recovery  in  order  to 
waive  restrictions  to  travel  into  the  Union,  they  should  accept  proofs  of  COVID-19 
vaccination,  recovery  or  testing  previously  covered  by  an  implementing  act  adopted 
pursuant  to  Article  3(10)  or  Article  8(2)  of  Regulations  (EU)  2021/953,  in  line  with 
the approach set out in Council Recommendation (EU) 2022/254817. 

(16)  During  the  same  period,  Member  States  who  have  not  yet  connected  to  the  WHO 
global  digital  health  certification  network  should  also  remain  connected  to  the  EU 
Gateway,  insofar  as  such  gateway  is  being  maintained  by  the  Commission.  Those 
Member  States  who  have  already  connected  to  the  WHO  global  digital  health 
certification  network  should  synchronise  the  information  they  upload  to  the  WHO 
global digital health certification network with the EU Gateway. 

(17)  Member States should give effect to this Recommendation as of 1 July, which is the 
day  after  the  expiry  of  Regulation  (EU) 2021/953,  so  that  any  possible  disruption, 
especially  concerning  international  travel  to  third  countries  still  requiring  COVID 
certificates,  is  avoided.  Specifically  as  regards  the  issuance  of  a  new  digital  signer 
certificate, Member States can only do so while Regulation (EU) 2021/953 is still in 
force.  They  are  therefore  invited  to  give  this  certificate  the  maximum  possible 
technical validity and to register it in the EU Gateway before the expiry of Regulation 
(EU) 2021/953 on 30 June 2023.  

(18)  Regulation (EU) 2016/679 of the European Parliament and of the Council18 applies to 
the processing of personal data carried out when implementing this Recommendation. 
Member  States  should  therefore  ensure  at  all  times  that  the  relevant  provisions  of 
Union law concerning personal data are complied with. 

16 

17 

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public health (2022/C 484/05) (OJ C 484, 20.12.2022, p. 18) 
Commission  Implementing  Decision  (EU)  2021/1073  of  28 June  2021  laying  down  technical 
specifications  and  rules  for  the  implementation  of  the  trust  framework  for  the  EU  Digital  COVID 
Certificate established by Regulation (EU) 2021/953 of the European Parliament and of the Council (OJ 
L 230, 30.6.2021, p. 32). 
Council Recommendation (EU) 2022/2548 of 13 December 2022 on a coordinated approach to travel to 
the Union during the COVID-19 pandemic and replacing Council Recommendation (EU) 2020/912 (OJ 
L 328, 22.12.2022, p. 146). 
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). 

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HAS ADOPTED THIS RECOMMENDATION:  

Connection to the WHO global digital health certification network  

1. 

2. 

3. 

Member States should adopt all necessary  measures to connect to the global digital 
health  certification  network  that  is  being  set  up  by  the  World  Health  Organization 
(WHO),  provided  that  it  complies  with  the  technical  specifications  issued  in 
accordance with Regulation (EU) 2021/953. Member States are encouraged to do so 
as soon as possible before 30 September 2023. 

Each Member State should issue a new digital signer certificate with the maximum 
possible  technical  validity  and  register  it  in  the  EU  Gateway  before  the  expiry  of 
Regulation (EU) 2021/953.  

The Council welcomes the Commission’s intention to facilitate a seamless transition 
from  the  EU  Digital  COVID  Certificate  system  to  the  WHO  global  digital  health 
certification network.  

Issuance  and  acceptance  of  certificates  under  the  WHO  global  digital  health  certification 
network 

4. 

Once  connected  to  the  WHO  global  digital  health  certification  network,  Member 
States should: 

(a) 

(b) 

issue,  upon  request,  COVID-19  vaccination,  test  and  recovery  certificates  in 
the  format  compatible  with  the  technical  specifications  laid  down  in 
Commission Implementing Decision (EU) 2021/1073; 

issue the certificates referred to in letter a) in a digital or paper-based format, or 
both.  The  prospective  holders  should  be  entitled  to  receive  the  certificates  in 
the format of their choice. The information contained in the certificates should 
also be shown in human-readable form and be provided in at least the official 
language or languages of the issuing Member State and in English. 

(c)  where they require proof of COVID-19 vaccination, test or recovery in order to 
waive  restrictions,  continue  to  accept  proofs  of  COVID-19  vaccination, 
recovery  or  testing  previously  covered  by  an  implementing  act  adopted 
pursuant  to  Article 3(10)  or  Article 8(2)  of  Regulation  (EU)  2021/953  and  in 
line with the rules issued in accordance with that Regulation;  

(d) 

ensure  that  cross-border  passenger  transport  service  operators  integrate  the 
verification of the certificates referred to in letter a) into the operation of cross-
border  transport  infrastructures  such  as  airports,  ports  and  railway  and  bus 
stations, where appropriate. 

Further evolution of the WHO global digital health certification network 

5. 

Member States are encouraged to actively participate in the effort to further develop 
the  WHO  global  digital  health  certification  network,  including  in  relation  to 
certificates for other diseases and authentication of other health data.  

Transitional period until 30 September 2023 

6. 

The Council welcomes the Commission’s intention to maintain the EU Gateway for 
the  EU  Digital  COVID  Certificate  in  a  manner  that  supports  the  objectives  of  this 
Recommendation until 30 September 2023, by making it available to third countries 
and territories which have been connected following the adoption by the Commission 
of implementing acts in accordance with Article 3(10) or Article 8(2) of Regulation 

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(EU)  2021/953,  provided  that  the  relevant  certificates  of  those  third  countries  and 
territories  continue  to  be  issued  in  accordance  with  standards  and  technological 
systems that are interoperable with the trust framework of the EU Gateway and that 
allow for the verification of their authenticity, validity and integrity. 

7. 

Until  Member  States  are  connected  to  the  WHO  global  digital  health  certification 
network referred to in point 1 and in the period until 30 September 2023, they should 

(a) 

(b) 

(c) 

remain  connected  to  the  EU  Gateway,  insofar  as  such  gateway  is  being 
maintained by the Commission; 

continue  to  issue,  upon  request,  COVID-19  vaccination,  test  and 
recovery  certificates  in  the  format  compatible  with  the  technical 
specifications  laid  down  in  Commission  Implementing  Decision  (EU) 
2021/107319; 

issue  the  certificates  referred  to  in  letter  b)  in  a  digital  or  paper-based 
format, or both. The prospective holders should be entitled to receive the 
certificates in the format of their choice. The information contained in the 
certificates  should  also  be  shown  in  human-readable  form  and  be 
provided  in  at  least  the  official  language  or  languages  of  the  issuing 
Member State and in English; 

(d)  where  they  require  proof  of  COVID-19  vaccination,  test  or  recovery  in 
order  to  waive  restrictions,  continue  to  accept  proofs  of  COVID-19 
vaccination,  recovery or testing  previously  covered by  an implementing 
act adopted pursuant to  Article 3(10) or Article 8(2) of Regulation (EU) 
2021/953  and  in  line  with  the  rules  issued  in  accordance  with  that 
Regulation;  

(e) 

ensure  that  cross-border  passenger  transport  service  operators  integrate 
the verification of the certificates referred to in letter b) into the operation 
of  cross-border  transport  infrastructures  such  as  airports,  ports  and 
railway and bus stations, where appropriate. 

Member  States  connected  to  the  WHO  global  digital  health  certification  network 
should also ensure, until 30 September 2023, the synchronisation of information they 
upload  in  the  EU  Gateway  and  in  the  WHO  global  digital  health  certification 
network.  

Member States should give effect to this Recommendation as of 1 July 2023 with the 
exception of point 2, to which effect should be given before 30 June 2023. 

Commission  Implementing  Decision  (EU)  2021/1073  of  28 June  2021  laying  down  technical 
specifications  and  rules  for  the  implementation  of  the  trust  framework  for  the  EU  Digital  COVID 
Certificate established by Regulation (EU) 2021/953 of the European Parliament and of the Council (OJ 
L 230, 30.6.2021, p. 32). 

8. 

9. 

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Done at Brussels, 

For the Council 
The President 

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