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EUROPEAN COMMISSION

Strasbourg, 15.9.2026 COM(2026) 980 final

2026/0271 (COD)

Proposal for a

REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL

on digitalising the coordination of social security systems, laying down a framework for

the European Social Security Pass (ESSPASS) and amending Regulations (EC) No

883/2004, (EC) No 987/2009 and (EU) No 2018/1724

{SEC(2026) 980 final} - {SWD(2026) 981 final} - {SWD(2026) 982 final} -

{SWD(2026) 983 final}

(Text with EEA relevance)

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EXPLANATORY MEMORANDUM

1. CONTEXT OF THE PROPOSAL

• Reasons for and objectives of the proposal

The free movement of persons is one of the four fundamental freedoms at the heart of the

EU single market and a major achievement of European integration. By facilitating

labour mobility, it helps address labour and skills shortages and supports economic growth

and competitiveness across Member States. Beyond its benefits for Europe’s economy, the

free movement of persons expands professional and personal opportunities for individuals,

encourages cultural exchange and a shared sense of community, thereby advancing the

integration of the European Union.

The effective exercise of this freedom requires clear rules, robust enforcement mechanisms

and coordinated policies among Member States to support mobility while guaranteeing

fairness, legal certainty and the protection of rights. A key pillar in this regard is the EU

social security coordination framework1. This ensures that individuals continue to receive

their benefits – such as pension, unemployment and family benefits – and are covered by

healthcare when moving to, staying in or travelling in other Member States. A revision to

modernise this framework has recently been provisionally agreed by the European Parliament

and the Council2. Once adopted, the revised framework will facilitate the exercise of citizens’

rights, achieve greater legal clarity and ease of enforcement, and make it easier for businesses

and workers to engage in short-term cross-border activities and business trips.

At the same time, there is still strong potential to make the EU social security coordination

rules easier to apply. This can be achieved through increased and better use of digital

technologies in this area, as part of the EU broader efforts to: (i) simplify procedures; (ii)

reduce burdens on individuals, businesses and national, regional and local authorities; and (iii)

support competitiveness in the EU single market.

Digital transformation is a central part of the EU’s strategic priorities, serving as a key

driver of innovation and competitiveness. In line with the Digital Decade policy

programme 2030 and the European Declaration on Digital Rights and Principles, the Union is

promoting the development of seamless and human-centric digital public services across

Europe.

Recent reports by Enrico Letta and Mario Draghi on the future of the single market and

Europe’s competitiveness emphasise the urgency of accelerating this digital transformation

and removing barriers that undermine the single market’s dynamism. Similarly, the 2026

single market and competitiveness report identifies persistent gaps in cross-border digital

1 Regulation (EC) No 883/2004 on the coordination of social security systems and Regulation (EC)

No 987/2009 laying down the procedure for implementing Regulation (EC) No 883/2004. These

Regulations also apply to Norway, Iceland, Liechtenstein and Switzerland. Specific rules are in place in

the agreements with the United Kingdom. 2 The European Parliament approved the provisional agreement on 7 July 2026, whereas formal adoption

by the Council is still pending.

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services and mobility challenges as significant obstacles – especially for small and medium-

sized enterprises (SMEs)3 – hindering Europe’s economic expansion and the seamless

functioning of the digital single market. Furthermore, the 2025 EU Startup and Scaleup

Strategy highlights the negative impact of regulatory fragmentation on the ability of startups

and scaleups to operate efficiently within the single market and to attract talent.

While the Commission and Member States have already taken steps under the current

framework to digitalise cross-border procedures, services and data exchanges in the area of

social security coordination, further action at EU level is required. This aligns with repeated

calls from the European Parliament, including in its 2021 Resolution on a European Social

Security Pass, echoed in the Commission’s Communication on digitalisation in social security

coordination, in the Council Conclusions of November 2023 and in the above-mentioned

Letta report. It also responds to requests from European social partners4 and civil society

organisations to strengthen the protection of workers’ social security rights, enhance

enforcement and facilitate labour mobility, while reducing administrative burdens.

The Electronic Exchange of Social Security Information (EESSI) system5 has

significantly improved the handling of cases under the EU social security coordination rules.

Covering areas such as sickness, accidents at work, pensions, unemployment and family

benefits, EESSI enables over 3.100 social security institutions across the 32 participating

countries (the 27 Member States as well as Iceland, Liechtenstein, Norway, Switzerland and

the United Kingdom) to exchange information electronically and securely, replacing paper-

based communication. Since its implementation, more than 42 million cases have been

handled, delivering tangible benefits for millions of individuals who now experience a more

efficient processing of their social security claims.

Despite this progress, some obstacles to fully realising the benefits of the system remain.

These include delays in the treatment of cross-border pension cases, which risk leaving

individuals without timely access to their entitlements, thus undermining people’s trust in the

EU’s social security coordination framework. The experience of implementing EESSI has

also revealed the technical, procedural and coordination challenges involved in the

digitalisation of cross-border social security procedures. Given the involvement of thousands

of institutions and the coverage of all branches of social security, more agile cooperation and

streamlined decision-making are necessary.

While improving the exchange of information among social security institutions through

EESSI is of paramount importance, it is only the first step. Further digitalisation is required

to:

3 See the 2024 SMET report: https://ec.europa.eu/internal_market/smet/_docs/2024/smet-report-

2024_en.pdf, p. 12. 4 BusinessEurope position paper: Stepping up EU simplification efforts in the field of social affairs,

ETUC contribution to the public consultation. 5 The EESSI project was launched in 2008, with the system entering into operations in 2019. For more

information see: Electronic Exchange of Social Security Information (EESSI) - Employment, Social

Affairs and Inclusion.

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• reinforce the protection of individuals and workers by facilitating more effective

access to social security rights across Europe;

• reduce administrative hurdles and costs for individuals accessing social security

benefits in other Member States and for businesses operating across borders;

• increase the quality of cross-border public services;

• provide Member States with more effective tools to fight against fraud, thus

strengthening the protection of rights and fair mobility.

Challenges continue to exist in the exchanges of information between individuals, businesses

and national authorities in cross-border social security scenarios. Individuals often struggle to

prove their social security rights promptly when moving, travelling or working across borders.

At the same time, social security institutions, labour inspectorates and healthcare providers

lack efficient, secure ways to confirm this information across Member States. Meanwhile,

businesses – particularly small and medium-sized enterprises (SMEs) – encounter persistent

difficulties in seamlessly complying with requirements when sending workers to work

temporarily abroad6.

The problem arises from:

• existing procedures for requesting, issuing and verifying social security documents,

including the European Health Insurance Card (EHIC), which are still largely paper-

based;

• limited cross-border interoperability and standardisation in documents’ format and

verification methods;

• processes that do not sufficiently accommodate the needs of individuals and

businesses.

This leads to inefficiencies, unnecessary procedural complexity, increased costs, time losses,

errors and fraud. This potentially makes it harder to easily access social security benefits in

other Member States, thus creating concrete barriers to intra-EU mobility7, freedom of

establishment and cross- border service provision.

To that end, the European Social Security Pass (ESSPASS) pilot project was launched as

part of the European Pillar of Social Rights action plan. The project’s aim was to explore a

digital solution for the issuing and cross-border verification of social security documents.

Between 2021 and 2025, digital solutions were tested for procedures related to the portable

6 The administrative hurdles linked to procedures for the posting of workers are considered one of the

most significant obstacles preventing businesses from expanding across Member States, according to

the 2025 Single Market Strategy. See also the SMET report, page 12. 7 The Draghi report emphasises that fears of losing access to social protection or facing difficulties

accessing social security in other Member States discourage individuals from relocating – even though

EU legislation ensures the portability of social security rights.

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document A18 and the EHIC, with the participation of a significant number of Member

States9.

The pilot’s success clearly demonstrated that the ESSPASS can:

• empower individuals to prove and exercise their rights more easily and securely

across borders;

• reduce administrative burdens for businesses;

• enhance fraud prevention through real-time verification of standardised digital

documents;

• improve efficiency for national authorities by reducing paper-based processes.

In light of these proven benefits, the Commission has announced a legislative framework

governing the ESSPASS in the Single Market Strategy and its 2026 Work Programme, as a

key component of the Fair Labour Mobility Package. The proposed regulation sets out

rules for swift deployment of the ESSPASS across all Member States. It establishes a

dedicated legal instrument covering the cross-border digital data exchanges and

procedures necessary to ensure effective implementation and enforcement of EU social

security coordination rules, including those facilitated through the EESSI system.

A standalone regulation addressing all digital aspects of social security coordination is

necessary to ensure legal clarity, consistency, enforceability and flexibility. These objectives

cannot be fully achieved through fragmented provisions within the existing social security

coordination framework. A dedicated legal instrument would establish the necessary legal

requirements, technical specifications and standards, interoperability requirements,

governance arrangements, and robust security and data protection safeguards. It would also

ensure that the corresponding binding implementation measures are applied uniformly and

effectively across all Member States. Furthermore, such an approach would provide greater

flexibility to accommodate future technological developments. By separating the digital

aspects from the core EU social security coordination framework, the proposed regulation

would enable timely updates to technical requirements, without necessitating amendments to

that framework. It would focus exclusively on the digitalisation of social security

coordination, thereby complementing the existing legal framework.

The proposed regulation will support a smooth transition from the ESSPASS pilot phase to

full-scale implementation. It will apply to the portable document A1 one year after entry into

force, and to the European Health Insurance Card after three years. After three years, it will

8 The Portable Document A1 certifies which Member State's social security legislation applies to a

person in a cross-border work situation. 9 The DC4EU project tested the use of the European Digital Identity framework. It involved 80

institutions from 22 countries, with 15 countries (AT, DE, DK, PL, BE, NL, FR, LU, BG, CZ, ES, PT,

IT, FI, CH) participating in the social security coordination work packages.

The EBSI-Vector project explored a solution relying on blockchain technologies, engaging 52 partners

from 20 countries, with five countries (AT, BE, DE, IT, NL) involved in the social security

coordination use cases. These projects were financially supported by the Digital Europe programme.

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also cover all other social security documents, except those for which an assessment shows

that digitalisation under ESSPASS would not bring added value.

By building on the European Digital Identity (EUDI) and the Single Digital Gateway

frameworks, the proposed Regulation will give individuals secure, direct access to their social

security documents via their EUDI wallets, while national authorities will benefit from instant

verification capabilities and better ways to detect fraud. The introduction of binding time

limits for issuing documents will further improve predictability for individuals and

businesses, including the self-employed, by reducing unnecessary delays. This will help

ensure the effective and timely exercise of rights under the EU social security coordination

framework. In addition, it will facilitate cross-border operations for businesses by enabling

them to plan with confidence and avoid administrative bottlenecks linked to variable

processing times. Greater transparency and direct access to proof of entitlements will make it

easier for workers and self-employed to demonstrate their coverage when working across

borders, reduce administrative hurdles linked to paper-based procedures, and help prevent

fraud and abuse that can undermine their rights. For businesses, particularly SMEs,

compliance with posting requirements will be simplified by achieving convergence in

information requirements for portable document A1 requests and reducing redundant data

submission, in line with the ‘once-only’ principle. This will lower administrative costs,

improve legal certainty when sending workers abroad, and help ensure faster, more reliable

access to the required documents. Governance will also be strengthened and simplified by

replacing the current arrangements with a more agile and structured approach. A dedicated

group on digitalisation in social security coordination composed of Member States’

representatives will be created to help develop technical specifications, monitor progress and

share experiences. This group will continue the work previously carried out by the Technical

Commission for data processing, established pursuant to Article 73 of Regulation (EC)

No 883/2004 of the European Parliament and of the Council10, and the ad hoc group of the

Administrative Commission for the coordination of social security systems on ESSPASS.

Moreover, a committee composed of Member States’ representatives will support the

Commission in the adoption of implementing acts in accordance with the examination

procedure set out in Article 5 of Regulation (EU) No 182/2011 of the European Parliament

and of the Council11 (‘comitology Committee’). This will ensure the rules remain adaptable

and future-proof, while preserving their binding nature.

The proposed regulation concerns persons covered by the EU rules on social security

coordination as defined in Article 2 of Regulation (EC) 883/2004 which includes workers,

self-employed persons, pensioners, unemployed and economically inactive insured persons,

10 Regulation (EC) No 883/2004 of the European Parliament and of the Council of 29 April 2004 on the

coordination of social security systems (OJ L 166, 30.4.2004, p. 1,

ELI: http://data.europa.eu/eli/reg/2004/883/oj) 11 Regulation (EU) No 182/2011 of the European Parliament and of the Council of 16 February 2011

laying down the rules and general principles concerning mechanisms for control by the Member States

of the Commission’s exercise of implementing powers (OJ L 55, 28.2.2011, p. 13,

ELI: http://data.europa.eu/eli/reg/2011/182/oj )

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and their family members.These rules also apply, under Regulation (EU) No 1231/201012, to

third-country nationals who are legally residing in a Member State and are in a cross-border

situation. Regulation (EU) No 1231/2010 will therefore need to be amended to ensure that the

measures introduced by this proposal also apply to these third-country nationals.

In terms of territorial coverage, the proposed regulation will encompass all the Member States

and will also be relevant for the EEA countries, Switzerland and the UK, subject to the

applicable legal arrangements.

• Consistency with existing provisions in the policy area

The proposed regulation supports the objectives of the European Pillar of Social Rights and is

consistent with existing Union related legislation, particularly the EU social security

coordination rules. It complements these rules by establishing a dedicated legal instrument

governing all cross-border digital procedures and data exchanges necessary to facilitate their

effective implementation and enforcement. The proposal does not modify existing rights and

obligations established under the social security coordination framework and does not

compromise the level of individual protection it entails. The recent revision of this framework

modernised and simplified it. The proposal is consistent with that approach as it further

modernises and simplifies the application of this framework through digitalisation. By

promoting the use of digital technologies across the Member States, the proposal strengthens

the existing protection, by simplifying access to social security rights and services across

borders.

The proposal is consistent with the Single Digital Gateway Regulation (SDGR)13. The SDGR

requires Member States to ensure that individuals and businesses can access and complete

administrative procedures fully online, including: (i) requests to determine which social

security legislation covers the holder – resulting in the issuing of the portable document A1;

(ii) EHIC applications; and (iii) pension claims. To ensure that individuals can fully exercise

their rights to free movement without administrative obstacles, the proposal expands the

SDGR in order to extend the possibility to submit fully online requests to cover additional

social security documents.

The proposal forms part of the Fair Labour Mobility Package. The package includes measures

aimed at modernising and simplifying the application and enforcement of labour mobility and

social security coordination rules. This is to ensure that mobility within the EU is fair and

protects workers against exploitation or disadvantages linked to mobility, while fostering a

competitive and dynamic business environment that thrives on skills and innovation.

12 Regulation (EU) No 1231/2010 of the European Parliament and of the Council of 24 November 2010

extending Regulation (EC) No 883/2004 and Regulation (EC) No 987/2009 to nationals of third

countries who are not already covered by these Regulations solely on the ground of their nationality (OJ

L 344, 29.12.2010, p. 1, ELI: https://eur-lex.europa.eu/eli/reg/2010/1231/oj). 13 Regulation (EU) 2018/1724 of the European Parliament and of the Council of 2 October 2018

establishing a single digital gateway to provide access to information, to procedures and to assistance

and problem-solving services and amending Regulation (EU) No 1024/2012 (OJ L 295, 21.11.2018, p.

1, ELI: http://data.europa.eu/eli/reg/2018/1724/oj)

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• Consistency with other Union policies

The proposal supports the European goals of simplifying administrative procedures for

individuals, businesses and national, regional and local authorities: less red tape, more trust,

better enforcement. This helps relaunch EU competitiveness, in line with the Draghi report

and the EU competitiveness compass. It also complements the 28th regime to help companies

(start-ups and scale-ups in particular) overcome barriers to operating across Europe,

supporting growth, innovation and global competition.

The proposal builds on ongoing efforts at EU level to foster inclusive digital participation for

all people across Europe14 and to accelerate the digitalisation of cross-border public services.

This aligns with the Digital Decade programme’s targets of 100 % online provision of key

services and of individuals having access to secure electronic identification solutions by 2030.

The proposal also builds on existing cross-sectoral initiatives such as the SDGR and the

Once-Only Technical System, the European Digital Identity framework and potentially the

future European Business Wallets, the Internal Market Information System and the

Interoperable Europe Act.

The proposal complements other legislation, systems and tools supporting labour mobility,

cross-border provision of services, social protection, cross-border healthcare and enforcement

of labour law intended to further facilitate the mobility of individuals and workers in the EU,

simplify administrative procedures for people, businesses and national authorities, and uphold

workers’ rights. Such systems and tools include:

• the European tracking service on pensions;

• the proposal for an e-Declaration on the posting of workers which has been

provisionally agreed by the European Parliament and the Council and the Road

Transport Posting Declaration Portal15;

• the European Health Data Space, including MyHealth@EU infrastructure, set out in

Regulation (EU) 2025/327 of the European Parliament and of the Council16;

• initiatives to explore the potential for interoperability between different Member

States’ labour and social identity cards.

2. LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY

• Legal basis

The proposal is based on Article 48 of the Treaty on the Functioning of the European Union

(TFEU). That article gives the EU the power to adopt measures to coordinate Member States’

14 European declaration on digital rights and principles. 15 References are made to the road transport sector as this is the only transport mode for which a dedicated

EU posting declaration portal has been established. No equivalent system exists for the other transport

modes. 16 Regulation (EU) 2025/327 of the European Parliament and of the Council of 11 February 2025 on the

European Health Data Space and amending Directive 2011/24/EU and Regulation (EU) 2024/2847 (OJ

L, 2025/327, 5.3.2025, ELI: http://data.europa.eu/eli/reg/2025/327/oj)

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social security systems in order to facilitate the free movement of workers and the protection

of their social security rights across the Union. While Article 48 TFEU applies to employed

and self-employed mobile workers and ‘their dependants’, Regulation (EC) No 883/2004,

based on what are now Articles 48 and 352 TFEU, extends social security coordination to

persons moving within the Union who do not pursue an economic activity. Article 48 TFEU

provides a solid legal basis for adopting measures complementary to the existing social

security coordination framework in order to digitalise cross-border social security procedures

and facilitate access to social security benefits and fair mobility within the EU.

• Subsidiarity (for non-exclusive competence)

The free movement of persons and freedom to provide services are fundamental freedoms of

the European Union. To fully benefit from these freedoms, individuals and businesses must

rely on efficient public services, including when accessing social security benefits or sending

workers to work abroad. Barriers to the seamless proof and cross-border verification of social

security rights and insurance status cannot be dealt with effectively by Member States on their

own. Digital solutions implemented by a single Member State will not ensure cross-border

interoperability and the recognition and verification of social security documents.

EU-level action will improve the proof and verification of social security rights and insurance

status. This in turn will improve access to benefits and healthcare, thus establishing a more

supporting environment for workers who are relocating or considering relocation within the

EU and in cross-border situations. Given the cross-border nature of the existing problems,

effective solutions are best pursued at EU level, rather than through individual efforts by

Member States. EU-level action will benefit mobile individuals by making their social

security rights more transparent and accessible, while reducing fraudulent and exploitative

practices. By reducing unnecessary administrative difficulties and complexities, EU action

will assist businesses operating across borders, while supporting national, regional and local

authorities by simplifying processes and strengthening cross-border cooperation. This will

improve understanding and implementation of the rules and make them easier to enforce,

while fostering trust in the EU’s social security coordination framework and Europe’s single

market.

EU action will also maximise the impact of prior EU investments, complementing key digital

EU initiatives such as the SDGR and the Once Only Technical System (OOTS), the EUDI

framework, the European Businesses Wallets, the Interoperable Europe Act and the European

Health Data Space. In this way, it will form part of a coherent and cohesive EU digital

landscape that serves the interests of the EU and its Member States. If the EU does not act

now, action by Member States would likely lead to fragmented, uncoordinated and

incompatible solutions that fail to integrate with existing EU initiatives. This could result in

suboptimal outcomes and be more costly to reverse at a later stage.

• Proportionality

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The proposal respects the principle of proportionality as it does not go beyond what is

necessary and appropriate for EU action. It establishes the ESSPASS framework for the

request, issuance and cross-border verification of social security documents created under the

EU social security coordination rules. This ensures interoperability, digital exchange and

mutual recognition of such documents, without interfering with national social security

systems. By relying on the existing EU framework (particularly the EUDI framework) instead

of building a completely new solution, the ESSPASS further adheres with the proportionality

principle, employing a cost-effective strategy which minimise costs and optimise resources

efficiently.

The proposal does not introduce any new declaration, reporting or documentation

requirements for employers or self-employed persons, nor does it alter the criteria for

determining the social security legislation applicable to a person in a cross-border situation.

• Choice of the instrument

Given the cross-border nature of the problem and the need to prevent regulatory

fragmentation, a regulation is considered the most suitable, effective and proportionate legal

instrument to achieve the defined policy objectives. As a directly applicable act, it ensures

uniform application across Member States, preventing fragmentation and providing legal

certainty and effectiveness. This also aligns with the identified legal basis and the existing

social security coordinaton framework, which it complements.

3. RESULTS OF EX POST EVALUATIONS, STAKEHOLDER

CONSULTATIONS AND IMPACT ASSESSMENTS

• Ex post evaluations/fitness checks of existing legislation

N/A

• Stakeholder consultations

From the outset, the Commission placed stakeholder engagement at the forefront of its

strategic planning, acknowledging its critical role in shaping effective policies. The

Commission launched the ESSPASS as a pilot project to actively involve Member States from

the early stages of development and to foster ownership. This ensured that the initiative is

both feasible and responsive to the needs and realities of those it aims to serve. The pilot

activities not only demonstrated the ESSPASS’s viability and benefits but also provided

valuable feedback, technical expertise and insight. These directly informed decisions on the

initiative’s subsequent development.

In line with the Better Regulation principles, the Commission conducted extensive

consultations to ensure that the perspectives and interests of all relevant stakeholders were

considered and integrated into the policymaking process. The consultation process gathered

feedback on the scale and nature of the problems to be addressed, the objectives of the

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proposed initiative, the policy options under consideration, and their potential impacts –

including costs and opportunities for simplification. This comprehensive evidence gathering

included the following activities, some of them as part of a supporting study on digitalisation

in social security coordination:

– two surveys (March-April 2025) targeting social security institutions, healthcare

providers and enforcement authorities, with 87 responses from 32 countries;

– 97 stakeholder interviews (2025) with national authorities, social partners and

technical experts to assess costs, benefits and feasibility;

– two workshops (June 2025) with 62 and 44 participants respectively,

to validate problem definitions and policy options;

– meetings with experts involved in the ESSPASS pilot projects (2025-2026);

– seminars and exchanges as part of social security coordination, including dedicated

meetings on ESSPASS and impact estimates;

– an implementation dialogue on fair labour mobility (16 September 2025);

– a high-level meeting on digitalisation in social security coordination with Member

State representatives (30 September 2025);

– a hearing of EU social partners (6 November 2025), gathering the views of workers’

and employers’ organisations;

– a call for evidence on ESSPASS (14 January 2026-11 February 2026) and one on the

Fair Labour Mobility Package;

– a public consultation (22 January-16 April 2026).

These consultations revealed broad support for further digitalisation in social security

coordination and for the ESSPASS initiative as a means to simplify cross-border social

security procedures, facilitate access to social security benefits across borders, reduce fraud

and reduce administrative burdens for individuals, businesses and national authorities.

Stakeholders – including trade unions, employers and public authorities – emphasised the

need for strong enforcement mechanisms, simplified processes and real-time verification

mechanisms to increase effectiveness. There was broad consensus on the reuse of EUDI

Wallets as the primary digital solution. There was also broad consensus on ensuring a fallback

option – such as secure, verifiable and revocable physical documents – for those unable or

unwilling to use digital tools. Some concerns were raised about implementation costs and data

security.

The public consultation and the calls for evidence reinforced these findings, with 93% of

respondents to the public consultation supporting a standardised solution for the digitalisation

of social security documents, the portable documents and the EHIC. Delays in document

issuance, cross-border verification challenges and fraud risks were cited as major pain points,

while real-time verification and interoperability emerged as top priorities. Overall, the

consultation underscored the ESSPASS’s potential to boost fair labour mobility, combat fraud

and modernise social security coordination, provided it is designed inclusively, governed

robustly and integrated seamlessly with existing systems.

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• Collection and use of expertise

N/A

• Impact assessments

The proposal for a regulation is accompanied by an impact assessment report17, a draft of

which was submitted to the Regulatory Scrutiny Board (RSB) on 29 April 2026. The RSB

issued a positive opinion with reservations on 4 May 2026, and the impact assessment report

was revised in accordance with the Board’s recommendations. The RSB’s more detailed

technical comments were also addressed.

The impact assessment examined a range of policy options. The selected options draw on the

findings from the pilot activities, stakeholder insights and additional factors such as: (a)

consistency with EU objectives, particularly the EU’s simplification and digitalisation agenda;

(b) reliance on existing EU initiatives such as the SDGR and the EUDI framework to

minimise expenses and optimise resource use; and (c) the EU’s shift towards user-centricity

and privacy-by-design as well the need to address the digital divide.

Three policy options were assessed:

– Policy Option 1 establishing a solution enhancing the existing format of portable

documents and the EHIC and enabling their verification across borders. This

involves issuing the documents in a standardised format, with digital security

features, which can be either printed or stored electronically.

– Policy Option 2 introducing a solution for the issuing and instant verification of

portable documents and the EHIC, relying on the EUDI framework. Individuals and

businesses would be able to securely store these documents within their EUDI

Wallets. If they cannot or prefer not to use the EUDI Wallets, non-enhanced physical

documents would remain available.

– Policy Option 3 establishing a solution encompassing the main elements set out in

Policy Option 2. However, individuals and businesses who cannot or prefer not to

use EUDI Wallets would receive enhanced physical documents which can be verified

even when printed (as in Policy Option 1).

The following measures were common to all policy options to ensure their smooth

implementation and strengthen their impact on EU competitiveness and simplification:

– Enabling individuals across all Member States to request and receive portable

documents electronically, even those not covered by the SDGR.

– Introducing binding deadlines for national authorities to issue social security

documents, thus ensuring their timely availability for cross-border use without

compromising accuracy.

– Convergence between national information requirements for requesting the portable

document A1 as well as the possibility of using the multilingual public interface for

the declaration of posted workers (e-declaration) once established, to the extent there

17 SWD (2026) …

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would be overlap of information requirements with the e-declaration. This would

enable applicants to submit data only once (following the once-only principle), as

requested by stakeholders and several Member States during the negotiations on the

e-declaration. This would be in line with the overall EU objective to reduce

administrative hurdles for businesses operating across borders. Convergence in

information requirements would also ensure better alignment on checks conducted

before issuing the A1 form.

Following an analysis of the policy alternatives, Policy Option 3 was identified as the

preferred choice. That option was deemed the most effective at achieving the objectives, the

most efficient in terms of costs and benefits, and the option ensuring the highest level of

consistency with other EU policies.

The assessment indicates that the preferred option is likely to significantly reduce reliance on

paper-based processes by introducing standardised, simplified digital procedures for

requesting, issuing and verifying social security documents between Member States. This

ensures seamless recognition of documents throughout the EU while offering flexibility for

individuals on how data are stored and presented. Implementing this policy option is expected

to deliver significant benefits for individuals, national authorities, labour inspectorates,

healthcare providers and businesses. Among the advantages, document verification times will

be reduced to just a few seconds for documents stored in the EUDI Wallets and to around one

minute for non-Wallet documents. This is in contrast to the current 5 to 16 minutes for the

portable document A1 and 2 to 5 minutes for EHIC. Over a 12-year period, this efficiency is

expected to generate cost savings of between EUR 24 million to 72 million for verifiers (e.g.

labour inspectorates) and EUR 21 million to 64 million for businesses (this is particularly

relevant for SMEs, which constitute 99% of EU businesses) in relation to the portable

document A1. For EHIC verifications, healthcare providers’ savings are estimated at between

EUR 23 million and EUR 69 million.

Enhanced security is another key advantage. Digitally signed documents with instant

verification will make forgery almost impossible, unlike the current situation. Over a 12-year

period, this could lead to cost savings from reduced fraud of up to EUR 157 million for the

portable document A1 and EUR 120 million for the EHIC. Additionally, reduced use of

plastic – estimated at up to 1 482 tonnes – could yield up to EUR 161 million in savings.

The preferred option supports the application of the rules on the coordination of social

security systems, easing access to benefits and healthcare. It also fosters trust, fairness and

data protection by giving users control of their data and ensuring GDPR-compliant handling

of personal data. Social benefits include increased transparency and fairness: workers will

have direct access to portable documents A1 and will gain a clearer understanding of their

social security position and rights when posted abroad. With full knowledge of their social

security arrangements, workers will become less susceptible to fraudulent practices and will

gain easier access to benefits they might be entitled to in the host country.

The preferred option also supports competitiveness by simplifying procedures for companies

operating across borders and supports advancements in digitalisation and innovation.

EN 13 EN

The use of EUDI Wallets for storing and sharing high-circulation documents like the EHIC

will accelerate wallet adoption. This will create a foundation for the future integration of

additional labour mobility documents through sector-specific legislation.

The preferred option includes upfront investments and annual maintenance costs. These

would be primarily borne by national public administrations, including ministries, social

security institutions and labour inspectors, as well as by healthcare providers. Individuals and

businesses are expected to face minimal expenses. Such expenses would mainly be related to

smartphone use if they want to store their social security coordination documents in the

national EUDI Wallets. Overall, total one-off EU costs (over a period of three years) are

estimated to be between EUR 186 million and EUR 218 million, with cumulative recurrent

costs amounting to EUR 278 million over the following 12 years (EUR 23.2 million

annually). The costs reflect the necessary infrastructure and integration efforts and are

balanced by projected long-term efficiencies and cost savings.

To support this investment, deployment should be eligible for EU funding, notably under the

successor instrument of the European Social Fund + (digitalisation of public services and

institutions) and the European Competitiveness Fund for the post-2027 programming period.

• Regulatory fitness and simplification

The initiative is expected to have a positive impact on competitiveness. Businesses are likely

to experience decreased costs thanks to reduced administrative hurdles and the shorter times

required to obtain and verify the portable document A1 and provide additional information in

cases of doubts about its validity. SMEs, which constitute 99% of EU businesses and typically

face greater challenges in meeting regulatory requirements due to their limited administrative

resources, are expected to benefit more than larger companies. This is especially the case in

sectors like construction and services, where posting and activities in two or more Member

States are more common. Easier compliance with requirements can lead to greater efficiency

in allocation of resources towards value-creating activities. This in turn can boost

productivity. Improved access to cross-border labour markets will enable businesses to take

advantage of a broader talent pool and optimise operations, making them more competitive in

both local and international markets. The initiative will also promote technological

advancement by encouraging digitalisation in public services and seamless access to services

for individuals and businesses. By adopting innovative solutions for the proof and cross-

border verification of social security rights and insurance status, the initiative strengthens

capacity for further innovations within the public sector. This should further contribute to EU

economic expansion and business competitiveness.

The proposal is consistent with the ‘Digital check’. It fully aligns with core e-government

principles:

• digital by default, promoting digital procedures as preferred choice, while still

offering alternative options;

• once-only principle, reducing redundant data submission;

EN 14 EN

• interoperability by design, facilitating cross-border recognition and verification of

documents as well as cross-border data exchange, and reducing fragmentation;

• user-centricity, putting people at the centre and ensuring predictable processing

times;

• inclusiveness and accessibility, guaranteeing equal access to all, notably to persons

with disabilities, older people and individuals with limited digital skills by offering

the option to request enhanced physical documents;

• trustworthiness and security, promoting the protection of personal data and high

security standards;

• cross-border by default, establishing services available across borders and reducing

unnecessary barriers to mobility.

• Fundamental rights

The proposed regulation is expected to make it easier to coordinate social security systems by

easing access to social security benefits and healthcare across Europe (Articles 34 and 35 of

the Charter of Fundamental Rights of the European Union Charter). This is achieved through

improved proof and verification of social security rights and the insurance status of

individuals moving across the EU. No reduction in the baseline level of protection has been

identified.

By ensuring social security rights and documents are more easily transferable and verifiable

through simplified procedures and reduced administrative processing times, the initiative is

expected to have a positive impact on:

• the free movement of persons and workers, as provided for in Article 45 of the TFEU

and in Articles 15 and 45 of the Charter of Fundamental Rights;

• the freedom to provide services, as enshrined in Article 56 TFEU and Article 16 of

the Charter.

As a result, workers would be more likely to take advantage of cross-border job opportunities

and businesses would be more eager to operate across borders. The proposed regulation does

not place any limitations on these freedoms.

The proposal is also likely to have a positive impact on the right to good administration, as

provided for in Article 41 of the Charter of Fundamental Rights. By simplifying procedures

and reducing processing times, it is anticipated that requests and operations will be handled

within a reasonable time, thus increasing legal certainty for individuals and businesses.

The proposed regulation includes the processing of personal data. It should therefore ensure

that such processing complies with the requirements of Regulation (EU) 2016/679 of the

European Parliament and of the Council (the ‘General Data Protection Regulation’)18 and the

18 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, ELI: http://data.europa.eu/eli/reg/2016/679/oj)

EN 15 EN

fundamental rights guaranteed in the Charter of Fundamental Rights, particularly the rights to

privacy and data protection in Articles 7 and 8 of the Charter, and in the TFEU, especially

Article 16 on the right to the protection of personal data. The preferred option is expected to

ensure a high level of security and data protection by giving users control, by minimising data

exposure, by guaranteeing selective disclosure, and by ensuring GDPR-compliant, secure and

transparent handling of personal data when using EUDI Wallets. Similarly, users will benefit

from legal safeguards when relying on enhanced physical documents.

4. BUDGETARY IMPLICATIONS

The proposal has very limited budgetary implications for the EU budget. The only operational

costs will be generated by organising meetings of the committee and the group on

digitalisation, and by supporting the Member States’ implementation of the digital solutions

established under the proposal. These expenses will be covered using existing internal budget

lines through redeployment of existing resources.

5. OTHER ELEMENTS

• Implementation strategy, implementation plans and monitoring, evaluation and

reporting arrangements

A comprehensive draft monitoring framework has been designed to monitor the

implementation and evaluate the initiative’s impact, thus ensuring it remains fit for purpose

and achieves the intended objectives. This framework will undergo further refinement based

on the ultimate legal specifications and implementation schedule. Progress will be tracked

through a set of operational, result and impact indicators linked to the specific objectives. The

framework will also help identify implementation challenges and help ensure that timely and

consistent implementation support is in place from the outset and throughout the rollout of the

initiative. The Commission, in close cooperation with Member States, will regularly collect

and analyse data, making use of existing reporting mechanisms. The data will be used to

identify implementation gaps and emerging implementation needs, assess the measure’s

efficiency, and provide the necessary evidence base for future evaluation.

The initiative could be evaluated no sooner than seven years following its entry into force to

assess the proposal’s actual impacts.

• Explanatory documents (for directives)

N/A

• Detailed explanation of the specific provisions of the proposal

Article 1 defines the subject matter, providing clarity as regards the proposal’s objectives.

Article 2 sets out the proposal’s material and personal scope by specifying the categories of

people and the social security branches to which the proposal applies.

EN 16 EN

Article 3 sets out the definitions of the main concepts used in the proposed regulation to

facilitate uniform interpretation and application.

Article 4 establishes the framework for the ESSPASS digital solution for the request,

issuance, cross-border verification, and recognition of social security documents, and outlines

its main features.

Article 5 determines the date from which Chapter I on the ESSPASS will apply to social

security documents. The deferred date of application is to give Member States sufficient time

to adapt to the new requirements.

Article 6 lays down an obligation for Member States to give individuals and businesses the

option to submit requests for the social security documents covered under the proposal fully

online using procedures that comply with Regulation (EU) 2018/172419.

Article 7 sets out the rules governing the issuance, validity and verification of social security

documents. It mandates a default digital format for these documents – intended for use in the

EUDI Wallets – while allowing for physical documents, enhanced with digital features to

strengthen their security. The article also provides for automatic notifications to the persons

concerned and the employers when documents are withdrawn and ensures cross-border

recognition and verification by designated verifiers to confirm authenticity, integrity and

validity. In addition, it confers implementing powers on the Commission to lay down the

functional, operational and technical specifications of the digital solution in accordance with

the examination procedure referred to in Article 5 of Regulation (EU) No 182/2011.

Article 8 introduces binding deadlines for the issuing of social security documents. This is to

prevent unnecessary delays, ensure the effective and timely exercise of rights under the EU

social security coordination rules and facilitate cross-border operations for businesses. The

article empowers the Commission to set document-specific deadlines through implementing

acts, subject to the examination procedure referred to in Article 5 of Regulation (EU)

No 182/2011.

Article 9 sets out specific provisions for the European Health Insurance Card.

Article 10 introduces convergence in information requirements for requests of the portable

document A1. This is to prevent inconsistencies across Member States in the verification of

the relevant facts before issuing such documents while streamlining request processes. The

Article also provides for a possible future technical interoperability between, on the one hand,

the national portals used to request the portable document A1 and, on the other hand, the

public interfaces connected to the Internal Market Information System for the posting of

drivers in the road transport sector and the posting declarations under Directive 2014/67/EU

of the European Parliament and of the Council20. The aim is to reduce administrative burdens

and promote reusability of data.

19 Regulation (EU) 2018/1724 of the European Parliament and of the Council of 2 October 2018

establishing a single digital gateway to provide access to information, to procedures and to assistance

and problem-solving services and amending Regulation (EU) No 1024/2012 (OJ L 295, 21.11.2018, p.

1, ELI: http://data.europa.eu/eli/reg/2018/1724/oj). 20 Directive 2014/67/EU of the European Parliament and of the Council of 15 May 2014 on the

enforcement of Directive 96/71/EC concerning the posting of workers in the framework of the

EN 17 EN

Article 11 reinforces the use of the EESSI system as the primary channel for cross-border data

exchanges between social security institutions under EU social security coordination rules.

The article provides that the system should continue to function in accordance with the

current technical and operational specifications. Any subsequent adaptations or enhancements

should be introduced via implementing acts, in accordance with the examination procedures

referred to in Article 5 of Regulation (EU) No 182/2011, to ensure their binding and uniform

application across all Member States. To further improve the trustworthiness of the system

and ensure that individuals have timely access to their social security benefits, the article also

introduces an obligation for Member States to comply with the maximum time periods for

exchanges through EESSI laid down in Annex I to the proposed Regulation. In addition, the

article empowers the Commission to adopt, where necessary, delegated acts to amend that

Annex.

Article 12 strengthens cooperation between Member States by providing a legal basis that

enables the electronic exchange of information to detect changes in circumstances affecting

social security rights and obligations and to better fight against fraud. The article empowers

the Commission to adopt technical arrangements through implementing acts, in accordance

with the examination procedure referred to in Article 5 of Regulation (EU) No 182/2011,

where the EESSI system is not deemed to be the most effective or appropriate exchange

method.

Article 13 creates a group on digitalisation in social security coordination to provide

operational support and establish a community of practice for exchanging experiences and

knowledge, thus facilitating cooperation among Member States.

Article 14 establishes a reporting obligation for Member States to ensure transparency and

accountability when implementing provisions related to Article 8(1) and Article 11(2).

Article 15 specifies the data protection requirements applicable to the processing of personal

data under the proposed regulation. It ensures that the processing of personal data carried out

pursuant to the proposed regulation complies with Regulation (EU) 2016/679 of the European

Parliament and of the Council and, where applicable, Regulation (EU) 2018/1725 of the

European Parliament and of the Council21.

Article 16 empowers the Commission to adopt delegated acts in accordance with Article 290

TFEU and lays down the conditions governing the exercise of that delegation.

Article 17 provides that the Commission will be assisted by a committee in adopting

implementing acts in accordance with Regulation (EU) No 182/2011.

Article 18 provides for the evaluation of the proposed regulation’s implementation and

effectiveness. Articles 19 and 20 provide for the amendment of Regulation 883/2004 and

provision of services and amending Regulation (EU) No 1024/2012 on administrative

cooperation through the Internal Market Information System (OJ L 159, 28.5.2014, pp. 11,

ELI: http://data.europa.eu/eli/dir/2014/67/oj) 21 Regulation (EU) No 2018/1725 of the European Parliament and of the Council of 23 October 2018 on

the protection of natural persons with regard to the processing of personal data by the Union

institutions, bodies, offices and agencies and on the free movement of such data, and repealing

Regulation (EC) No 45/2001 and Decision No 1247/2002/EC (OJ L 295, 21.11.2018, p. 39,

ELI: http://data.europa.eu/eli/reg/2018/1725/oj)

EN 18 EN

Regulation (EC) No 987/2009 of the European Parliament and of the Council to ensure their

alignment with the proposed regulation and the new governance framework, and to maintain

legal consistency.

Article 21 provides for the amendment of Annex II of Regulation (EU) 2018/1724 to include

in the scope of the Single Digital Gateway Regulation the online procedures for requesting the

social security documents falling within the scope of this Regulation.

Article 22 lays down the rules concerning the entry into force of the proposed regulation.

EN 19 EN

2026/0271 (COD)

Proposal for a

REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL

on digitalising the coordination of social security systems, laying down a framework for

the European Social Security Pass (ESSPASS) and amending Regulations (EC) No

883/2004, (EC) No 987/2009 and (EU) No 2018/1724

(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 48 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) The free movement of persons is a fundamental freedom guaranteed by the Treaty on

the Functioning of the European Union (TFEU) and a cornerstone of the Union single

market. For this freedom to be fully realised, it is essential that individuals, workers

and their families can effectively exercise their social security rights when moving to,

staying in, residing or working in another Member State.

(2) To that end, the Union has established a comprehensive legal framework under

Regulations (EC) No 883/200422 and (EC) No 987/200923 of the European Parliament

and of the Council. Those rules coordinate Member States’ social security systems to

ensure that individuals in cross-border situations retain access to social security

benefits such as pensions, unemployment benefits and healthcare. However, the proper

application of those rules requires efficient social security procedures that keep pace

with technological progress and evolving societal needs.

(3) Digitalisation in social security coordination is essential to increase the efficiency of

data exchanges, accelerate claims processing, streamline access to benefits and reduce

administrative hurdles for individuals, businesses and national authorities. It also helps

strengthen fraud prevention, thereby reinforcing trust in the Union’s social security

coordination framework and contributing to making mobility free and fair for all.

22 Regulation (EC) No 883/2004 of the European Parliament and of the Council of 29 April 2004 on the

coordination of social security systems (OJ L 166, 30.4.2004, p. 1,

ELI: http://data.europa.eu/eli/reg/2004/883/oj).

23 Regulation (EC) No 987/2009 of the European Parliament and of the Council of 16 September 2009

laying down the procedure for implementing Regulation (EC) No 883/2004 on the coordination of

social security systems (OJ L 284, 30.10.2009, p. 1, ELI: http://data.europa.eu/eli/reg/2009/987/oj).

EN 20 EN

(4) The complexity of cross-border data exchanges and the further digitalisation of

procedures in social security coordination require a dedicated legal instrument, capable

of adapting to future technological, social and policy developments. That legal

instrument should complement the Union rules on social security coordination, laid

down in Regulations (EC) No 883/2004 and (EC) No 987/2009, by dealing with the

digital systems and processes necessary for those rules’ effective implementation and

enforcement. Since the provisions of this act are intrinsically linked and should

operate in conjunction with the social security coordination Regulations and

complement them, these provisions also need to take the form of a regulation.

(5) Due to the technical specificity, interoperability requirements and rapidly evolving

nature of digital processes, it is appropriate to adopt the necessary rules in the form of

a separate legal instrument. This is to ensure legal clarity and uniform application

across the Union, and to provide the flexibility to accommodate emerging digital

developments, without requiring amendments to the Union rules on social security

coordination.

(6) In order to ensure legal certainty and consistency with Regulation (EC) No 883/2004,

the scope of this legal instrument should be aligned with the personal and material

scope laid down in that Regulation.

(7) It is necessary to lay down rules for the establishment and operation of the European

Social Security Pass (ESSPASS). This is a digital solution for the electronic request,

issuance and cross-border verification of social security documents, including the

European Health Insurance Card (EHIC). The ESSPASS should ensure that

individuals are able to swiftly prove their social security rights and should support the

seamless exercise of those rights in cross-border situations, while enabling social

security institutions, labour inspectorates and healthcare providers to efficiently and

securely verify the relevant information. This in turn would facilitate fraud checks and

strengthen enforcement. The ESSPASS should also simplify compliance with

applicable requirements for businesses engaging workers, and for self-employed, in

cross-border situations.

(8) The ESSPASS pilot phase from 2021 to 2025, launched under the European Pillar of

Social Rights action plan and supported by the Digital Europe programme, proved

both the technical feasibility and the practical benefits of the ESSPASS.

(9) Procedures related to the portable document A1 and the EHIC have already

demonstrated their potential to reduce administrative burden, while the pilot phase has

provided evidence of their technical feasibility. The ESSPASS framework should first

apply to the portable document A1, reflecting its advanced state of technical

preparedness. It should subsequently apply to the EHIC, and to the other social

security documents, except those for which an assessment demonstrates no relevance,

feasibility or cost-effectiveness.

(10) To avoid duplication of effort, the ESSPASS should build on and complement existing

Union digital initiatives, particularly Regulations (EU) 2018/172424, (EU) 2024/90325

and (EU) 910/201426 of the European Parliament and of the Council.

24 Regulation (EU) 2018/1724 of the European Parliament and of the Council of 2 October 2018

establishing a single digital gateway to provide access to information, to procedures and to assistance

and problem-solving services and amending Regulation (EU) No 1024/2012 (OJ L 295, 21.11.2018, p.

1, ELI: http://data.europa.eu/eli/reg/2018/1724/oj).

EN 21 EN

(11) Regulation (EU) 2018/1724 requires Member States to enable individuals and

businesses to complete certain procedures fully online. This includes requests to

determine which social security legislation covers the holder, resulting in the issuing

of the portable document A1, as well as applications for the EHIC and claims for

pension benefits. To ensure that individuals can fully exercise their rights to free

movement and labour mobility without administrative obstacles, the possibility to

submit requests fully online should be extended to cover the social security documents

within the scope of this Regulation. Annex II to Regulation (EU) 2018/1724 should

therefore be amended to include the online procedures for requesting the social

security documents falling within the scope of this Regulation.

(12) To maintain a human-centric approach to digitalisation and optimise Member States’

investments, reliance on the European Digital Identity Wallets as established by

Regulation (EU) 2024/1183 of the European Parliament and of the Council, in

combination with Regulation (EU) 2018/1724, is crucial. Those wallets provide a

harmonised, legally sound, highly secure and privacy-compliant mechanism for

securely storing and sharing digital identity data and documents.

(13) To promote efficiency and modernisation, digital social security documents should

become the default format. At the same time, it is essential that individuals and

businesses retain the right to request and receive physical social security documents.

This promotes inclusivity and avoids exacerbating inequalities in access to services.

The physical social security documents should be enhanced with standardised digital

features that enable their secure verification, thus helping to reduce the risk of fraud.

As those physical documents will contain digital features, they should fall within the

scope of this Regulation.

(14) Workers in cross-border situations often lack clear information about their social

security position. For instance, they might be unaware that employers have requested a

portable document A1 related to their cross-border activity or have had one issued.

Workers’ direct access to social security documents should therefore be facilitated,

improving transparency over social security rights and affiliation. This is expected to

reduce exposure to fraud and guarantee that workers swiftly receive the social security

benefits to which they are entitled.

(15) Given the importance of tackling cross-border social security fraud and reinforcing

mutual trust, Member States should properly verify the accuracy of the information

provided before issuing social security documents, exercising due diligence. The use

of digital tools should be promoted to support this process.

(16) Natural persons under legal representation, including minor children, might not have

access to a European Digital Identity Wallet. Therefore, legal representatives such as

parents, guardians or other duly authorised persons should be able to receive and store

the represented person’s digital social security documents in their own European

Digital Identity Wallet. This is necessary to facilitate access to digital documents of

persons under legal representation, which is particularly important when they need

medical care in emergencies.

25 Regulation (EU) 2024/903 of the European Parliament and of the Council of 13 March 2024 laying

down measures for a high level of public sector interoperability across the Union (Interoperable Europe

Act) (OJ L, 2024/903, 22.3.2024, ELI: http://data.europa.eu/eli/reg/2024/903/oj). 26 Regulation (EU) No 910/2014 of the European Parliament and of the Council of 23 July 2014 on

electronic identification and trust services for electronic transactions in the internal market and

repealing Directive 1999/93/EC (OJ L 257, 28.8.2014, pp. 73,

ELI: http://data.europa.eu/eli/reg/2014/910/oj

EN 22 EN

(17) To ensure equal access, the social security documents and the processes through which

they are requested, made available and shared should be accessible to persons with

disabilities in accordance with Directive (EU) 2016/2102 of the European Parliament

and of the Council27, and, where applicable, Directive (EU) 2019/882 of the European

Parliament and of the Council28.

(18) In order to ensure the timely exercise of the rights provided for in Regulation (EC) No

883/2004, competent institutions should be required to issue social security documents

to the person concerned and, where applicable, to the employer, within binding time

limits. Experience has shown that delays in the issuing of such documents can hinder

individuals’ timely access to benefits and create obstacles to the cross-border

operations of businesses. Given the importance of rapid access to healthcare during a

temporary stay abroad, the maximum deadline for the issuance of the European Health

Insurance Card should not exceed 24 hours from the submission of a complete request.

This should be achievable, as the only information to check is the actual insurance of

the person.

(19) To support seamless cross-border mobility, interoperability and synergies between the

ESSPASS and the Electronic Exchange of Social Security Information (EESSI)

system established in accordance with Regulation (EC) No 987/2009 should be

explored. Where appropriate, interoperability and synergies should also be explored

between the ESSPASS and other Union initiatives, including the Once-Only Technical

System, the proposed European Business Wallets, the Internal Market Information

(IMI) System and digital initiatives in the areas of posting of workers, pension

tracking, labour law, company law, taxation and digital health.

(20) The digitalisation of the EHIC under the ESSPASS will further improve individuals’

access to medically necessary healthcare during temporary stays in other Member

States. This in turn will enable healthcare providers across Europe to verify insurance

status swiftly and accurately, thus reducing instances of EHIC refusal and

inappropriate use of the card. To facilitate faster, more accurate and more secure

handling of reimbursement claims under Union social security coordination rules and

improve overall efficiency, it is crucial for healthcare providers to streamline the

transmission of relevant data through automated means. This should be done while

complying with data protection rules and the principle of proportionality. The

investments and adaptations for healthcare digital systems already provided for under

the European Health Data Space should be leveraged to create synergies that maximise

the efficiency of the digital healthcare systems, notably where interaction with the

EUDI Wallets is envisaged in both domains.

(21) The essential data required for requesting the portable document A1 should be aligned

across Member States. This is to ensure consistent verification of the facts relevant for

determining the applicable legislation, which is essential to help detect incorrect

declarations and fraud, as well as to reduce the administrative burden on employers

posting workers. Furthermore, national portals for requesting the portable document

A1 could be able to interoperate, through a streamlined technical implementation, with

the public interfaces connected to the Internal Market Information System (IMI) so

27 Directive (EU) 2016/2102 of the European Parliament and of the Council of 26 October 2016 on the

accessibility of the websites and mobile applications of public sector bodies (OJ L 327, 2.12.2016, p. 1,

ELI: http://data.europa.eu/eli/dir/2016/2102/oj).28 Directive (EU) 2019/882 of the European Parliament and of the Council of 17 April 2019 on the

accessibility requirements for products and services (OJ L 151, 7.6.2019, p. 70,

ELI: http://data.europa.eu/eli/dir/2019/882/oj).

EN 23 EN

that common data can be submitted only once and then re-used where possible, in line

with the ‘once-only’ principle. Such possible interoperability should reduce

administrative burden for businesses and also facilitate cross-border provision of

services, in line with the Commission’s simplification objectives. To inform and

strengthen the development work, the Commission, with Member States’ support,

should also evaluate the cost-benefit ratio of the simplification and administrative

burden reduction, compatibility with existing systems and alignment with ongoing and

future Union initiatives, in particular any updates to the IMI regulatory framework.

Any interoperability measures should be consistent with Regulation (EU) 2018/1724

and facilitate compliance with the requirements applicable to the fully online

procedure and the once only principle for requesting the determination of the

applicable social-security legislation.

(22) ESSPASS is intended to complement the EESSI system. While ESSPASS provides a

solution for individuals and businesses to digitally interact with national authorities,

this Regulation should also govern exchanges between social security institutions,

especially those facilitated through the EESSI system. To ensure efficiency and

consistency, the EESSI system should remain the primary means for such exchanges.

(23) A comparative study by the Administrative Commission for the coordination of social

security systems has demonstrated that the processing of cross-border social security

cases takes on average four times longer than comparable national cases, across all

branches of social security. It is therefore essential to introduce measures to prevent

unnecessary delays in the treatment of cross-border cases caused by the late exchange

of data.

(24) The effective prevention and detection of errors and fraud in cross-border social

security matters requires efficient information exchange and close cooperation

between Member States. It is therefore necessary to lay down rules for data exchanges

in cases where the EESSI system cannot be used effectively. Those rules should

provide competent authorities and institutions with greater legal certainty and a robust

legal basis for exchanging data to detect fraud and inaccuracies in the information

underpinning rights provided for under Regulation (EC) No 883/2004, and for

verifying data through cross-checking with other Member States’ authorities and

institutions via electronic exchange or secure direct database access. All requests for

information and responses should remain necessary and proportionate.

(25) To support the consistent implementation of this Regulation and establish a

community of practice for exchanging experiences and knowledge, a group on

digitalisation in social security coordination should be established, composed of two

representatives of each Member State, combining technical and policy expertise on

digital aspects in the social security coordination field, and representatives of the

Commission. The details of its composition should be laid down in its rules of

procedure. That group should also continue the work previously carried out by the

Technical Commission for data processing, established pursuant to Article 73 of

Regulation (EC) No 883/2004, and the ad hoc groups of the Administrative

Commission for the coordination of social security systems, including the one on the

ESSPASS. To ensure the effective implementation of the ESSPASS framework, which

builds on the European digital identity framework, the Digitalisation Group should

cooperate, when relevant, with the Administrative Commission for the coordination of

social security systems and the European Digital Identity Cooperation Group.

EN 24 EN

(26) The European Labour Authority (ELA) should continue to play a crucial role in

supporting Member States’ efforts to digitalise cross-border social security processes.

This should consist in particular in facilitating the regular exchange of good practices

and experiences, promoting the effective use of digital tools, and providing capacity-

building measures such as training and knowledge-sharing initiatives, to boost national

authorities’ digital readiness. The ELA should also continue to raise awareness among

individuals, employers and other relevant stakeholders such as healthcare providers,

through targeted information campaigns, guidance materials and outreach activities.

This should help improve understanding and transparency regarding cross-border

social security rights and obligations, and regarding the available digital tools.

(27) Any processing of personal data under this Regulation should be undertaken in

accordance with Regulations (EU) 2016/679 and (EU) 2018/1725, and Directive

2002/58/EC29. Personal data should be processed under this Regulation only for the

specific purposes set out therein and Regulations (EC) No 883/2004 and (EC) No

987/2009, without affecting further processing for archiving purposes in the public

interest in accordance with Articles 5(1)(b) and 89 of Regulation (EU) 2016/679.

(28) This Regulation establishes a legal basis for the storage and processing of the data

contained in the social security documents for the purposes of proving and verifying

social security rights in cross-border situations. Personal data to be processed under

this Regulation should be data contained in these social security documents. That

personal data should concern, in particular, the information needed to digitally identify

natural persons, to facilitate the faster and more accurate exercise of rights under

Regulation (EC) No 883/2004, and to verify the validity and content of the

information and documents exchanged. This data shall belong to the following

categories of data: name, date and place of birth, address, personal identification

number, professional data and health data. In applying this Regulation, that personal

data will be handled by Member States’ issuers and verifiers. The Regulation limits

the storage period of personal data to the period strictly necessary for their

verification. The measures provided for in this Regulation are proportionate, as they

are strictly confined to what is required for verifying rights, managing social security

cases, ensuring compliance and combating fraud. Robust safeguards – including data

minimisation, access control and encryption – should be implemented in order to

ensure minimal intrusion while implementing acts should specify the common data

models.

(29) To ensure uniform conditions for the implementation of this Regulation, the power to

adopt acts in accordance with Article 290 TFEU should be delegated to the

Commission in respect of the list of social security documents for which the

application of the ESSPASS framework does not provide any added value and

amendments to Annex I. It is of particular importance that the Commission carry out

appropriate consultations during its preparatory work, including at expert level, and

that those consultations be conducted in accordance with the principles laid down in

the Interinstitutional Agreement of 13 April 2016 on Better Law-Making30. In

particular, to ensure equal participation in the preparation of delegated acts, the

European Parliament and the Council receive all documents at the same time as

29 Directive 2002/58/EC of the European Parliament and of the Council of 12 July 2002 concerning the

processing of personal data and the protection of privacy in the electronic communications sector

(Directive on privacy and electronic communications) (OJ L 201, 31.7.2002, p. 37). 30 OJ L 123, 12.5.2016, p. 1, ELI: http://data.europa.eu/eli/agree_interinstit/2016/512/oj.

EN 25 EN

Member States' experts, and their experts systematically have access to meetings of

Commission expert groups dealing with the preparation of delegated acts.

(30) In order to ensure uniform conditions for the implementation of this Regulation,

implementing powers should be conferred on the Commission to specify the

functional and technical specifications and procedures regarding social security

documents, specify the deadlines for issuing social security documents, lay down

common information requirements for requesting the portable document A1, establish

a common technical framework to ensure interoperability between national portals for

requesting that document and the public interfaces connected to IMI for the

declaration of posting of workers and drivers, specify future functional and technical

specifications of the EESSI system with regard to certain areas, establish a common

approach for the secure exchange of, or access to, data necessary for checks on the

correct application or enforcement of Regulations (EC) No 883/2004 and (EC) No

987/2009, and specify the format and structure of the Member States’ reports on the

implementation of this Regulation. Those powers should beexercisedin accordance

with Regulation (EU) No 182/2011 of the European Parliament and of the Council31.

(31) For reasons of clarity and consistency with this Regulation, obsolete provisions in

Regulations (EC) No 883/2004 and (EC) No 987/2009 related to the governance of

electronic data exchanges should be deleted. Those Regulations should therefore be

amended accordingly.

(32) To allow Member States sufficient time to adapt their administrative and technical

arrangements to the development of the ESSPASS, the application of the provisions

concerning the ESSPASS should be deferred.

(33) The European Data Protection Supervisor was consulted in accordance with

Article 42(1) of Regulation (EU) 2018/1725 [and delivered an opinion on …].

(34) Since the objectives of this Regulation, namely the establishment of a uniform, secure

and interoperable digital framework for the request, issuance and cross-border

verification of social security documents, as well as for the cross-border exchange of

social security information, cannot be sufficiently achieved by Member States acting

individually but can rather, by reason of the cross‑border nature and scale of the

action, be better achieved at Union level, the Union may adopt measures in accordance

with the principle of subsidiarity as set out in Article 5 of the Treaty on European

Union. In accordance with the principle of proportionality, as set out in that Article,

this Regulation does not go beyond what is necessary to achieve its objectives.

HAVE ADOPTED THIS REGULATION:

Article 1

Subject matter

1. This Regulation sets out rules for the digitalisation of cross-border exchanges of

social security information which facilitate the effective application and enforcement

of Regulations (EC) No 883/2004 and (EC) No 987/2009.

31 Regulation (EU) No 182/2011 of the European Parliament and of the Council of 16 February 2011

laying down the rules and general principles concerning mechanisms for control by the Member States

of the Commission’s exercise of implementing powers (OJ L 55, 28.2.2011, p. 13,

ELI: http://data.europa.eu/eli/reg/2011/182/oj).

EN 26 EN

2. In particular, the Regulation lays down rules:

(a) on the establishment and operation of the European Social Security Pass

(ESSPASS), as a means to digitally and timely prove and verify social security

rights for individuals exercising their right to free movement and facilitate

compliance for employers;

(b) on the functioning, evolution and improvement of the Electronic Exchange of

Social Security Information (EESSI) system which ensures secure,

standardised and interoperable data exchanges between social security

institutions;

(c) on other digital cross-border exchanges of data between competent institutions

necessary to combat cross-border social security fraud, as well as to detect

changes in circumstances, inaccuracies, inconsistencies or errors.

3. This Regulation complements Regulations (EC) No 883/2004 and (EC)

No 987/2009. It shall not affect the rights and obligations laid down in those

Regulations, save where otherwise provided in this Regulation.

Article 2

Scope

This Regulation shall apply to persons falling within the scope of Regulation (EC)

No 883/2004, as laid down in its Article 2, and to the branches of social security listed in

Article 3(1) of that Regulation.

Article 3

Definitions

1. For the purposes of this Regulation, the definitions set out in Regulations (EC)

No 883/2004 and (EC) No 987/2009 apply.

2. The following definitions also apply:

(a) ‘European Social Security Pass’ or ‘ESSPASS’ means the digital solution for

the request, issuance, cross-border verification and recognition of social

security documents within the Union;

(b) ‘social security document’ means any set of data (irrespective of its format),

attesting to a person’s social security position, which is required for the

implementation of Regulation (EC) No 883/2004 and Regulation (EC)

No 987/2009;

(c) ‘European Digital Identity Wallet’ means a European Digital Identity Wallet

defined in Article 3, point (42), of Regulation (EU) No 910/2014 of the

European Parliament and of the Council;

(d) ‘digital social security document’ means a social security document issued by

the competent institution of a Member State, which is designed to be stored,

EN 27 EN

managed and shared via the European Digital Identity Wallet and verifiable

electronically;

(e) ‘portable document A1’ means the social security document referred to in

Article 19(2) of Regulation (EC) No 987/2009, issued by the competent

institution of a Member State, attesting that its legislation applies under Title II

of Regulation (EC) No 883/2004;

(f) ‘European Health Insurance Card’ or ‘EHIC’ means the social security

document issued in accordance with Article 25 of Regulation (EC)

No 987/2009;

(g) ‘issuer’ means any institution as defined in Article 1, point (p), of Regulation

(EC) No 883/2004, or any body or authority designated, recognised or

otherwise competent under the law of a Member State, which is responsible for

issuing, transmitting and, where necessary, rectifying or withdrawing social

security documents within the scope of Regulations (EC) No 883/2004 and

(EC) No 987/2009;

(h) ‘verifier’ means any public or private entity, or natural person acting in a

professional capacity, that is designated, authorised or recognised by a Member

State as being entitled to verify social security documents in accordance with

this Regulation.

Chapter I

European Social Security Pass

Article 4

Legal framework for the ESSPASS

1. The legal framework for the ESSPASS consists of the rules laid down in this Chapter

with regard to the following:

(a) the online submission, by the persons concerned and the employers, of requests

for social security documents to competent institutions of the Member States;

(b) the issuing of social security documents by the Member States’ competent

institutions to the persons concerned and the employers;

(c) the electronic verification of social security documents by verifiers, to confirm

their authenticity, integrity and validity.

Article 5

Scope and application of the legal framework for the ESSPASS

1. This Chapter shall apply:

(a) from [date of entry into force plus 12 months] to the portable document A1;

EN 28 EN

(b) from [date of entry into force plus 3 years] to EHIC, and to other social

security documents except those identified in the delegated acts adopted

pursuant to paragraph 2.

2. By [date of entry into force plus 18 months], the Commission may adopt delegated

acts establishing, on the basis of an assessment, a list of social security documents,

other than the portable document A1 and EHIC, for which this Chapter would not

apply.

3. The assessment shall consider the following:

(c) the operational relevance of the documents concerned, having regard in

particular to their frequency of issuance, the number of documents issued and

potential for fraud prevention;

(d) the expected costs and benefits of digitalising the documents concerned for the

exercise of social security rights and the efficient implementation of

Regulations (EC) No 883/2004 and (EC) No 987/2009, including the

administrative burden reduction for individuals and businesses.

Article 6

Online request procedures for social security documents

Persons concerned and, where applicable, employers, shall be able to submit requests for

social security documents falling within the scope of this Regulation fully online using

procedures that comply with Regulation (EU) 2018/1724. The online request procedure shall

be user-friendly, accessible and comply with the following requirements:

(a) It shall enable the electronic identification and authentication of the person

concerned and, where applicable, the employer;

(b) It shall allow for the electronic provision of the information, documents or

supporting evidence, referred to in Article 3(2) of Regulation (EC) No 987/2009,

necessary to process the request;

(c) It shall ensure that the final submission of the request can be completed remotely;

(d) It shall provide the person concerned and, where applicable, the employer with an

automatic acknowledgement of receipt after the completed submission has been

completed, unless the document is issued immediately;

(e) It shall notify the person concerned and, where applicable, the employer,

electronically that the issuing procedure has been completed.

EN 29 EN

Article 7

Issuance, validity and verification of social security documents

1. The competent institutions shall issue digital social security documents in a format

suitable for use in the European Digital Identity Wallet of the person concerned and,

where relevant, of the employer. The digital social security documents shall comply

with the technical specifications adopted pursuant to paragraph 11.

2. By way of derogation from paragraph 1, at the request of the person concerned or the

employer, the competent institutions shall issue the social security document in a

standardised and accessible physical format. Such a document shall include a QR

code or other electronic features to enhance its security and shall comply with the

technical specifications adopted pursuant to paragraph 11.

3. Each Member State shall communicate to the Commission a list of issuers and shall

keep that list up to date. The Commission shall make those lists available to the

public through a secure channel and in an electronically signed or sealed form

suitable for automated processing. With regard to issuers of the portable document

A1, the list shall be communicated to the Commission by [date of entry into force

plus 12 months]. Member States shall communicate the list of issuers of EHIC and

other social security documents falling within the scope of this Chapter by [date of

entry into force plus 3 years].

4. Before issuing a social security document, the issuers shall verify the accuracy of the

information provided by the persons concerned and, where applicable, by the

employers in support of their request, including by means of digital tools.

5. Where a social security document referred to in paragraph 1 or paragraph 2 is

revoked, the issuer shall immediately notify the person concerned and, where

applicable, the employer. Notification shall be made by electronic means, except if

other means are indicated by both the person concerned and, where applicable, the

employer.

6. The issuers shall ensure that a person is able to receive and store, within their own

European Digital Identity Wallet, the digital social security documents of their minor

children and of a natural person whom they legally represent.

7. Social security documents issued under paragraphs 1 and 2 by one Member State

shall be recognised by verifiers in all Member States.

Where a document issued in accordance with this Regulation has been verified, its

validity or authenticity shall not be subject to further proof requirements in the host

Member State. This paragraph shall be without prejudice to the procedures

applicable in the event of doubt or dispute under Regulations (EC) No 883/2004 and

(EC) No 987/2009.

8. Member States shall ensure that verifiers established on their territory are equipped

with the necessary technical means to verify the social security documents issued

under this Article, regardless of the format, in order to confirm their authenticity,

integrity and validity. They shall be able to verify that:

(a) the document was issued by an authorised institution;

(b) the data contained in the document have not been tampered with since it was

issued;

EN 30 EN

(c) the document has not expired or been revoked.

9. Personal data processed for the purposes of verifying the concerned person’s social

security document shall not be retained by the verifier after the verification is

complete, unless it is necessary to apply Regulations (EC) No 883/2004 and (EC) No

987/2009, or authorised by other Union or national legal act in accordance with

Regulation (EU) 2016/679 or Directive (EU) 2016/68032.

10. ESSPASS shall be interoperable with the EESSI system and, where appropriate, with

other relevant Union digital initiatives, including the European Health Data Space

and the Once-Only Technical system.

11. The Commission shall adopt implementing acts specifying the functional and

technical specifications regarding the documents referred to in paragraphs 1 and 2.

Those implementing acts shall include:

(a) the technical and interoperability specifications, including common data

models establishing the data to be processed, standards and accessibility

requirements;

(b) the procedures for requesting, issuing, revoking and verifying documents,

including aspects related to the lists of issuers in accordance with paragraph 3

of this Article;

(c) the technical and organisational security measures, including encryption and

access control measures;

(d) the organisational measures for processing and protecting personal data,

including with regard to the retention periods, and the roles of controllers and

processors in accordance with Regulation (EU) 2016/679.

Those implementing acts shall be adopted in accordance with the examination procedure

referred to in Article 17(2).

Article 8

Deadlines for issuing social security documents

1. Competent institutions shall issue social security documents to the person concerned

and, where applicable, the employer in compliance with the deadlines established in

accordance with paragraphs 2 and 3.

2. By [date of entry into force plus 18 months], the Commission shall adopt

implementing acts specifying the deadlines for issuing social security documents

32 Directive (EU) 2016/680 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 by competent authorities for

the purposes of the prevention, investigation, detection or prosecution of criminal offences or the

execution of criminal penalties, and on the free movement of such data, and repealing Council

Framework Decision 2008/977/JHA (OJ L 119, 4.5.2016, p. 89,

ELI: http://data.europa.eu/eli/dir/2016/680/oj).

EN 31 EN

under the scope of this Chapter, calculated from the submission of a complete

request.

3. By way of derogation from paragraph 2, the implementing act specifying the

deadline for issuing the portable document A1 shall be adopted by [date of entry into

force plus 12 months].

4. For the issuance of the European Health Insurance Card, the maximum deadline shall

not exceed 24 hours.

5. When specifying the deadlines, the Commission shall take into account the

following:

(a) the type of social security document requested;

(b) the procedural steps required for verifying the information provided before

issuing the requested social security document, including where relevant the

necessary exchanges of information between competent institutions;

(c) the need to ensure the timely exercise of rights under Regulation (EC)

No 883/2004.

Those implementing acts shall be adopted in accordance with the examination

procedure referred to in Article 17(2).

6. Upon receipt of the request, the issuer shall inform the persons concerned or the

employers, as applicable, of the expected time required to process their request and

of the applicable deadlines laid down in the implementing acts adopted pursuant to

paragraph 2.

Article 9

European Health Insurance Cards

1. From [date of entry into force plus 3 years], all newly issued European Health

Insurance Cards shall comply with the requirements laid down in Article 7. European

Health Insurance Cards already in circulation which have not yet expired at that date

shall be replaced no later than [date of entry into force plus 5 years].

2. From [date of entry into force plus 3 years], Member States shall ensure that

healthcare providers on their territory are able to transmit electronically the data

contained in the European Health Insurance Card of a patient from another Member

State, and all the data that need to be transmitted for the reimbursement process, to

the competent institutions of the Member State of treatment.

Article 10

Portable document A1

1. By [date of entry into force plus 12 months], the Commission shall adopt

implementing acts establishing common information requirements for requesting the

EN 32 EN

portable document A1, not exceeding what is necessary to determine the applicable

legislation and with due regard to administrative burden reduction.

2. The Commission shall establish, by means of implementing acts, a common

technical framework to ensure interoperability between national portals used to

request the portable document A1 and the public interfaces connected to the Internal

Market Information System33 for the declaration of posting of workers and for the

posting of drivers in road transport, as provided for in Article 1(11) of Directive (EU)

2020/1057. That technical framework shall enable the reuse of relevant submitted

data across the procedures for the request of the portable document A1 and the

submission of posting declarations, in compliance with Regulations (EU) 2016/679

and (EU) 2018/1725 and the once-only principle.

3. The implementing acts referred to in paragraphs 1 and 2 shall be adopted in

accordance with the examination procedure referred to in Article 17(2).

Chapter II

Exchanges between institutions

Article 11

Exchanges through the EESSI system

1. Member States shall exchange, access and process the data required to apply

Regulations (EC) No 883/2004 and (EC) No 987/2009 via the EESSI system in

accordance with the functional and technical specifications as laid down pursuant to

Article 78 of Regulation (EC) No 987/2009.

2. When exchanging the data via the EESSI system, Member States shall comply with

the maximum time periods laid down in Annex I to this Regulation.

3. The Commission is empowered to adopt delegated acts in accordance with Article 16

in order to amend Annex I, taking into account the following:

(a) the business use cases and the structured electronic documents involved in the

exchange;

(b) the procedural steps required for gathering the information, including where

relevant the necessary exchanges of information between competent

institutions at the national level;

(c) the need to ensure the timely exercise of rights under Regulation (EC)

No 883/2004.

33 Regulation (EU) No 1024/2012 of the European Parliament and of the Council of 25 October 2012 on

administrative cooperation through the Internal Market Information System and repealing Commission

Decision 2008/49/EC (‘the IMI Regulation’) (OJ L 316, 14.11.2012, p. 1,

ELI: http://data.europa.eu/eli/reg/2012/1024/oj).

EN 33 EN

4. For the purposes of personal data processing within the EESSI system, the

Commission shall be considered a processor as defined in Article 3, point (12), of

Regulation (EU) 2018/1725 and Member States’ joint controllers as referred to in

Article 26 of Regulation (EU) 2016/679.

5. The Commission shall further specify, by way of implementing acts, the functional

and technical specifications of the EESSI system with regard to the following areas:

(a) the business use cases and the structure, format, content and data models of the

information exchanged;

(b) the procedural and technical rules for data exchanges;

(c) the roles and responsibilities of the bodies involved in the exchanges;

(d) business continuity measures;

(e) security and data protection measures;

(f) operational and support measures;

(g) the details of the public database containing the information specified in

Article 88(4) of Regulation (EC) No 987/2009;

(h) the service levels.

Those implementing acts shall be adopted in accordance with the examination

procedure referred to in Article 17(2).

Article 12

Electronic exchange of information

outside the EESSI system

1. By way of derogation from Article 11(1), where the exchange of data necessary for

controls on the correct application or enforcement of Regulations (EC) No 883/2004

and (EC) No 987/2009, including for the purposes of detecting changes in

circumstances, inaccuracies, inconsistencies, fraud and error, cannot be effectively

carried out through the EESSI system, such data, or secure access to such data may

be provided outside the EESSI system, in accordance with the common procedures

and specifications established pursuant to paragraph 2.

2. The Commission shall, where applicable, adopt implementing acts to establish

common procedures and functional and technical specifications for the secure

exchange of data or access to data referred to in paragraph 1.

3. The implementing acts may include the following:

(a) arrangements concerning the categories of data to be exchanged or made

accessible and the role and responsibility of the bodies involved in the

exchanges;

(b) the means of exchange or access;

(c) standard formats or structures;

(d) measures ensuring the security, integrity and reliability of the exchange or

access.

EN 34 EN

Those implementing acts shall be adopted in accordance with the examination

procedure referred to in Article 17(2).

Chapter III

Governance and data processing

Article 13

Digitalisation Group

1. A group on digitalisation in social security coordination (the ‘Digitalisation

Group’) is established to facilitate cross-border cooperation on the digital aspects of

the coordination of social security systems set out in this Regulation.

2. The Digitalisation Group shall be made up of two government representatives from

each of the Member States, assisted, where necessary, by expert advisers.

Representatives of the European Commission shall also attend the meetings of the

Digitalisation Group. The Group shall be chaired by the Commission, which shall

also provide its secretariat.

3. The Digitalisation Group shall have the following tasks:

(a) support the consistent implementation of this Regulation by facilitating

coordination, the exchange of information and the promotion of best practices

across Member States and developing guidelines to support enforcement of this

Regulation;

(b) provide recommendations to the committee referred to in Article 17, where

appropriate, on further digitalisation of the coordination of social security

systems;

(c) support the development and operation of electronic data exchanges in

accordance with this Regulation;

(d) advise the Commission, as appropriate, in the early preparations of draft

implementing acts to be adopted pursuant to this Regulation.

4. The Digitalisation Group shall cooperate, when relevant, with the Administrative

Commission for the coordination of social security systems referred to in Title IV of

Regulation (EC) No 883/2004 and with the European Digital Identity Cooperation

Group referred to in Article 46e of Regulation (EU) No 910/2014.

5. The Digitalisation Group shall adopt its rules of procedure.

Article 14

Monitoring and reporting

EN 35 EN

1. Member States shall collect the data necessary for monitoring the implementation of

Article 8(1) and Article 11(2) and shall transmit those data to the Commission

quarterly, by the end of the month following each calendar quarter. The Commission

shall publish statistics based on the data collected.

2. The Commission shall adopt implementing acts specifying the format and structure

of the reports referred to in paragraph 1. Those implementing acts shall be adopted in

accordance with the examination procedure referred to in Article 17(2).

Article 15

Protection and processing of personal data

1. Personal data required for the application of this Regulation shall be processed by

Member States’ issuers and verifiers for the purposes of issuing and verifying of

social security documents as defined by implementing acts adopted under the present

Regulation. In particular, personal data shall be processed under this Regulation for

the purposes of:

(a) issuing social security documents;

(b) determining social security rights of documents’ holders;

(c) verifying the validity of social security documents and information contained

therein.

2. Personal data to be processed pursuant to this Regulation shall be those contained in

the social security documents handled, for the purposes referred to in paragraph 1 by

Member States’ issuers and verifiers. Processing of personal data under this

Regulation shall be limited to the extent necessary for the purposes set out in

paragraph 1, without affecting further processing for archiving purposes in the public

interest in accordance with Article 5(1), point (b) and Article 89 of the Regulation

(EU) 2016/679.

3. For the purposes of this Regulation, Member States’ issuers of social security

documents under the ESSPASS framework shall be regarded as controllers within

the meaning of Article 4(7) of the Regulation (EU) 2016/679. Controllers shall

ensure the security, integrity, authenticity and confidentiality of the data processed

for the purposes set out in paragraph 1.

Chapter IV

Final provisions

Article 16

Exercise of the delegation

EN 36 EN

1. The power to adopt delegated acts is conferred on the Commission subject to the

conditions laid down in this Article.

2. The power to adopt delegated acts referred to in Articles 5(2) and 11(3) shall be

conferredon the Commission for an indeterminate period of time from [the date of

entry into force of this Regulation].

3. The delegation of power referred to in Articles 5(2) and 11(3) may be revoked at any

time by the European Parliament or by the Council. A decision to revoke shall put an

end to the delegation of the power specified in that decision. It shall take effect the

day following the publication of the decision in the Official Journal of the European

Union or at a later date specified therein. It shall not affect the validity of any

delegated acts already in force.

4. Before adopting a delegated act, the Commission shall consult experts designated by

each Member State in accordance with the principles laid down in the

Interinstitutional Agreement of 13 April 2016 on Better Law-Making.

5. As soon as it adopts a delegated act, the Commission shall notify it simultaneously to

the European Parliament and to the Council.

6. A delegated act adopted pursuant to Articles 5(2) and 11(3) shall enter into force

only if no objection has been expressed either by the European Parliament or by the

Council within a period of [two months] of notification of that act to the European

Parliament and the Council or if, before the expiry of that period, the European

Parliament and the Council have both informed the Commission that they will not

object.That period shall be extended by [two months] at the initiative of the

European Parliament or of the Council.

Article 17

Committee

1. The Commission shall be assisted by a committee within the meaning of Regulation

(EU) No 182/2011.

2. Where reference is made to this paragraph, Article 5 of Regulation (EU)

No 182/2011 shall apply.

Article 18

Evaluation

1. By [seven years after the date of entry into force], the Commission shall evaluate the

implementation and effectiveness of this Regulation.

2. The evaluation shall assess, in particular, whether the objectives of this Regulation

have been achieved and whether its provisions remain relevant, effective, efficient,

coherent and proportionate.

3. The Commission shall submit a report on the findings of the evaluation to the

European Parliament and the Council. The report shall be made publicly available.

EN 37 EN

Article 19

Amendments to Regulation (EC) No 883/2004

1. Regulation (EC) No883/2004 is amended as follows:

(1) in Article 72, point (d) is deleted;

(2) Article 73 is deleted.

2. Decisions of the Administrative Commission concerning digital aspects, adopted

under Article 72, point (d) of Regulation (EC) No 883/2004, shall continue to

serve as guidance until the implementing acts provided for in this Regulation enter

into force. The Technical Commission on social security coordination referred to in

Decision H15 shall continue to work until the adoption of the rules of procedure of

the Digitalisation Group pursuant to Article 13(5).

Article 20

Amendments to Regulation (EC) No 987/2009

Article 4 of Regulation (EC) No 987/2009 is amended as follows:

(1) paragraph 1 is deleted;

(2) in paragraph 3, the second sentence is deleted.

Article 21

Amendments to Regulation (EU) 2018/1724

Annex II to Regulation (EU) 2018/1724 is amended as follows:

In the table, the following row is inserted after the row 'Retiring':

Exercising social

security rights

Applications, requests and

notifications relating to the

exercise of social security rights

under Regulation [ESSPASS

Proposal].

Confirmation of applications,

requests and notifications relating to

the exercise of social security rights,

as well as all outputs pertaining to

the procedures under Regulation

[ESSPASS Proposal].

Article 22

Entry into force

This Regulation shall enter into force on the twentieth day following that of its publication in

the Official Journal of the European Union.

EN 38 EN

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

Done at Strasbourg,

For the European Parliament For the Council

The President The President

EN 1 EN

LEGISLATIVE FINANCIAL AND DIGITAL STATEMENT

1. FRAMEWORK OF THE PROPOSAL/INITIATIVE ................................................. 3

1.1. Title of the proposal/initiative ...................................................................................... 3

1.2. Policy area(s) concerned .............................................................................................. 3

1.3. Objective(s) .................................................................................................................. 3

1.3.1. General objective(s) ..................................................................................................... 3

1.3.2. Specific objective(s) ..................................................................................................... 3

1.3.3. Expected result(s) and impact ...................................................................................... 3

1.3.4. Indicators of performance ............................................................................................ 3

1.4. The proposal/initiative relates to: ................................................................................. 4

1.5. Grounds for the proposal/initiative .............................................................................. 4

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 ............................................................ 4

1.5.2. Added value of EU involvement (it may result from different factors, e.g.

coordination gains, legal certainty, greater effectiveness or complementarities). For

the purposes of this section ‘added value of EU involvement’ is the value resulting

from EU action, that is additional to the value that would have been otherwise

created by Member States alone. ................................................................................. 4

1.5.3. Lessons learned from similar experiences in the past .................................................. 4

1.5.4. Compatibility with the multiannual financial framework and possible synergies with

other appropriate instruments ....................................................................................... 5

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

redeployment ................................................................................................................ 5

1.6. Duration of the proposal/initiative and of its financial impact .................................... 6

1.7. Method(s) of budget implementation planned ............................................................. 6

2. MANAGEMENT MEASURES................................................................................... 8

2.1. Monitoring and reporting rules .................................................................................... 8

2.2. Management and control system(s) ............................................................................. 8

2.2.1. Justification of the budget implementation method(s), the funding implementation

mechanism(s), the payment modalities and the control strategy proposed .................. 8

2.2.2. Information concerning the risks identified and the internal control system(s) set up

to mitigate them............................................................................................................ 8

2.2.3. Estimation and justification of the cost-effectiveness of the controls (ratio between

the control costs and the value of the related funds managed), and assessment of the

expected levels of risk of error (at payment & at closure) ........................................... 8

2.3. Measures to prevent fraud and irregularities ................................................................ 9

3. ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE ............ 10

EN 2 EN

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

affected ....................................................................................................................... 10

3.2. Estimated financial impact of the proposal on appropriations ................................... 12

3.2.1. Summary of estimated impact on operational appropriations.................................... 12

3.2.1.1. Appropriations from voted budget ............................................................................. 12

3.2.1.2. Appropriations from external assigned revenues ....................................................... 17

3.2.2. Estimated output funded from operational appropriations......................................... 22

3.2.3. Summary of estimated impact on administrative appropriations ............................... 24

3.2.3.1. Appropriations from voted budget .............................................................................. 24

3.2.3.2. Appropriations from external assigned revenues ....................................................... 24

3.2.3.3. Total appropriations ................................................................................................... 24

3.2.4. Estimated requirements of human resources.............................................................. 25

3.2.4.1. Financed from voted budget....................................................................................... 25

3.2.4.2. Financed from external assigned revenues ................................................................ 26

3.2.4.3. Total requirements of human resources ..................................................................... 26

3.2.5. Overview of estimated impact on digital technology-related investments ................ 28

3.2.6. Compatibility with the current multiannual financial framework.............................. 28

3.2.7. Third-party contributions ........................................................................................... 28

3.3. Estimated impact on revenue ..................................................................................... 29

4. DIGITAL DIMENSIONS .......................................................................................... 29

4.1. Requirements of digital relevance .............................................................................. 30

4.2. Data ............................................................................................................................ 30

4.3. Digital solutions ......................................................................................................... 31

4.4. Interoperability assessment ........................................................................................ 31

4.5. Measures to support digital implementation .............................................................. 32

EN 3 EN

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 on

digitalising the coordination of social security systems, laying down a framework for

the European Social Security Pass (ESSPASS) and amending Regulations (EC)

No 883/2004, (EC) No 987/2009 and (EU) No 2018/1724

1.2. Policy area(s) concerned

People, society and social model, Free movement of persons, labour mobility

Access to services

Digitalisation of public administrations

1.3. Objective(s)

1.3.1. General objective(s)

The initiative aims to promote fair mobility within the EU, facilitating access to

social security rights for all individuals - in line with the European Pillar of Social

Rights and the single market strategy. It supports the Union’s cross-cutting

objectives of simplification and reduction of administrative hurdles through

digitalised cross-border public services.

1.3.2. Specific objective(s)

The specific objectives of the initiative are:

(1) Cross-border social security cases requiring the proof and verification of

social security rights and insurance status are handled with reduced manual

intervention and streamlined administrative steps, leading to faster and more

consistent processing.

(2) Cross-border interoperability is strengthened through converged documents’

formats, data models and verification methods across the EU, enabling

seamless exchange of information and reducing fraud.

(3) Individuals experience improved accessibility, awareness, and control over

their cross-border social security rights and data.

Individuals experience improved accessibility, awareness, and control over their cross-border

social security rights and data.

1.3.3. Expected result(s) and impact

The initiative is expected to reinforce the social security coordination framework, by

improving rules’ application and making their implementation simpler, more

efficient, and resistant to fraud.

It will increase the transparency and accessibility of rights for individuals, while

helping reduce fraudulent and exploitative practices. It is also anticipated to assist

businesses, making it easier for them to carry out activities across borders, and to

EN 4 EN

support national authorities by simplifying processes and enhancing cooperation. The

initiative will drive the digitalisation of cross-border public services, ultimately

contributing to a better competitiveness of the EU economy.

1.3.4. Indicators of performance

A comprehensive draft monitoring framework has been designed to monitor the

implementation and evaluate the initiative’s impact, ensuring that it remains fit for

purpose and achieve the intended objectives. This framework will undergo further

refinement based on the ultimate legal specifications and implementation schedule.

Indicators includes:

1) Percentage of procedures fully available online

2) Percentage of documents issued electronically

3) Percentage of compliant national authorities

4) Number of complaints by businesses and individuals on cases exceeding the

deadlines

5) Proportion of documents processed automatically across Member States

6) Reduction in processing time to issue and verify documents

7) Number of rejected healthcare reimbursement invoices

8) Reduction in the cases of falsified portable documents and inappropriate use of

EHIC

9) Percentage of users satisfied with the solution and awareness rating

10) Time of completion of users’ requests (reducing average time, reducing

difference between minimum and maximum time needed between Member

States)

11) Number of cross-border verifications completed successfully (transaction

volume, increasing)

12) Cybersecurity indices of data safety.

A comprehensive draft monitoring framework has been designed to monitor the

implementation and evaluate the initiative’s impact, ensuring that it remains fit for purpose

and achieve the intended objectives. This framework will undergo further refinement based on

the ultimate legal specifications and implementation schedule.

Indicators includes:

EN 5 EN

Percentage of procedures fully available online

Percentage of documents issued electronically

Percentage of compliant national authorities

Number of complaints by businesses and individuals on cases exceeding the deadlines

Proportion of documents processed automatically across Member States

Reduction in processing time to issue and verify documents

Number of rejected healthcare reimbursement invoices

Reduction in the cases of falsified portable documents and inappropriate use of EHIC

Percentage of users satisfied with the solution and awareness rating

Time of completion of users’ requests (reducing average time, reducing difference

between minimum and maximum time needed between Member States)

Number of cross-border verifications completed successfully (transaction volume,

increasing)

Cybersecurity indices of data safety.

1.4. The proposal/initiative relates to:

a new action

a new action following a pilot project / preparatory action34

the extension of an existing action

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

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

The main requirement for the short-term is to reach an agreement on the legislative

proposal by co-legislators by Q3 2027.

The proposal provides for the adoption of implementing acts.

1.5.2. Added value of EU involvement (it may result from different factors, e.g.

coordination gains, legal certainty, greater effectiveness or complementarities). For

the purposes of this section ’added value of EU involvement’ is the value resulting

from EU action, that is additional to the value that would have been otherwise

created by Member States alone.

Action at the EU level delivers significant added value by supporting the free

movement of people for study, travel, residency, family or business purposes. Given

the cross-border nature of the identified issues, only EU-level intervention rather

than individual Member State efforts can effectively solve these. An action at EU

level will ensure alignments with other EU digital initiatives, such as the Single

Digital Gateway Regulation and the European Digital Identity framework, ensuring

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

EN 6 EN

the necessary efficiency and. EU-level action prevents fragmentation that could arise

if Member States develop disparate digital solutions, leading to suboptimal outcomes

and potentially higher costs to remedy.

1.5.3. Lessons learned from similar experiences in the past

One of the key considerations in estimating the budgetary requirements for this

initiative has been the valuable lessons learned from past experiences, particularly

those derived from the implementation of the Electronic Exchange of Social Security

Information (EESSI) system. The financial projections take into account the

operational and technical support necessary for Member States’ national

implementation, ensuring that adequate resources are allocated. Additionally,

insights gained from the ESSPASS pilot activities have provided a clearer

understanding of the scope of effort and resource allocation.

1.5.4. Compatibility with the multiannual financial framework and possible synergies with

other appropriate instruments

The proposal is compatible with the multiannual financial framework.

It is part of the Fair labour mobility package, it supports the European pillar of social

rights and the Digital decade policy programme.

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

redeployment

The implementation of this legislative proposal requires the organisation of meetings

with Member States in the Group on digitalisation in social security coordination and

in the Committee supporting the adoption of implementing acts as well as human

resources to support Member States’ national implementation. The necessary

expenditure for organising these meetings, i.e. travel costs of delegates, and

providing this support is covered by the general budget.

EN 7 EN

1.6. Duration of the proposal/initiative and of its financial impact

limited duration

•  in effect from [DD/MM]YYYY to [DD/MM]YYYY

•  financial impact from YYYY to YYYY for commitment appropriations and

from YYYY to YYYY for payment appropriations.

unlimited duration

(1) Implementation with a start-up period from 2026 to 2030,

(2) followed by full-scale operation.

1.7. Method(s) of budget implementation planned

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 European Investment Bank 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 are provided with 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 are provided with adequate

financial guarantees

•  bodies or persons entrusted with the implementation of specific actions in the

common foreign and security policy pursuant to Title V of the Treaty on European

Union, and identified in the relevant basic act

• bodies established in a Member State, governed by the private law of a Member

State or Union law and eligible to be entrusted, in accordance with sector-specific

rules, with the implementation of Union funds or budgetary guarantees, to the extent

that such bodies are controlled by public law bodies or by bodies governed by private

law with a public service mission, and are provided with adequate financial

guarantees in the form of joint and several liability by the controlling bodies or

equivalent financial guarantees and which may be, for each action, limited to the

maximum amount of the Union support.

Comments

From 2028 onwards, a modest but ongoing financial requirement will arise. This will need to

be accounted for in the preparation of the post-2027 MFF (2028-2034), ensuring adequate

allocation for continued implementation support.

EN 8 EN

The estimated impact on expenditure and staffing for 2028 and beyond is added for

illustrative purposes only and does not pre-judge the next Multiannual Financial Framework.

The source of financing and scope of Union financial commitment in the post-2027 period

remain subject to the outcome of interinstitutional negotiations on the MFF 2028-2034 and

thereafter shall be determined through the annual budgetary procedure. All appropriations and

staffing allocations as of 2028 are indicative.

EN 9 EN

2. MANAGEMENT MEASURES

2.1. Monitoring and reporting rules

The proposed Regulation establishes a reporting obligation for Member States to

ensure transparency and accountability in the implementation of provisions related to

deadlines to issue social security documents and to exchange data through the

Electronic Exchange of Social Security system.

2.2. Management and control system(s)

2.2.1. Justification of the budget implementation method(s), the funding implementation

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

Direct management, as per Article 62.1(a) of the Financial Regulation, is the

preferred mode of implementation, as the actions will be carried out by the European

Commission, specifically Directorate-General for Employment, Social Affairs and

Inclusion (DG EMPL), which will ensure the coordination with Member States and

the various stakeholders.

2.2.2. Information concerning the risks identified and the internal control system(s) set up

to mitigate them

The controls are part of the internal control system of DG EMPL. The new activities

will be subject to the same risk identification and mitigation approach.

2.2.3. Estimation and justification of the cost-effectiveness of the controls (ratio between

the control costs and the value of the related funds managed), and assessment of the

expected levels of risk of error (at payment & at closure)

The controls are integrated into the internal control system of DG EMPL. The new

activities will generate negligeable additional control costs at DG level.

2.3. Measures to prevent fraud and irregularities

The Commission shall ensure that, when actions financed are implemented, the financial

interests of the Union are protected by the application of preventive measures against fraud,

corruption and any other illegal activities, by effective checks and by the recovery of the

amounts unduly paid and, if irregularities are detected, by effective, proportional and

dissuasive penalties. The Commission is authorised to carry out checks and verifications in

situ under this Decision, in compliance Council Regulation (Euratom, EC) No 2185/96 of

11 November 1996 concerning on-the-spot checks and inspections carried out by the

Commission in order to protect the European Communities financial interests against fraud

and other irregularities. If need be, investigations shall be carried out by the European Anti-

Fraud Office and shall be governed by Regulation (EC) No 1073/1999 of the European

Parliament and of the Council of 25 May 1999 concerning investigations conducted by the

European Anti-Fraud Office.

EN 10 EN

3. ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE

3.1. 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

Budget line Type of

expenditure Contribution

Number Headings 2

Non-

diff 35

.

from

EFTA

countries 36

from

candidate

countries

and

potential

candidates 37

From

other

third

countries

other assigned

revenue

2

Prerogatives - Free movement of workers,

coordination of social security schemes

and measures for migrants, including

migrants from third countries

diff. YES/NO YES/NO YES/NO NO

35 Diff. = Differentiated appropriations / Non-diff. = Non-differentiated appropriations. 36 EFTA: European Free Trade Association. 37 Candidate countries and, where applicable, potential candidates from the Western Balkans.

EN 11 EN

3.2. Estimated financial impact of the proposal on appropriations

3.2.1. Summary of estimated impact on operational appropriations

(3)  The proposal/initiative does not require the use of operational appropriations

(1)  The proposal requires the use of operational appropriations, as explained below

3.2.1.1. Appropriations from voted budget

EUR million (to three decimal places)

DG: EMPL Year Year Year Year Year Year Year

TOTAL MFF 2028-2034 2028 2029 2030 2031 2032 2033 2034

Operational appropriations

Budget line Prerogatives –

Free movement of workers,

coordination of social security schemes and measures

for migrants, including migrants from third countries

Commitments (1a) 0.750 0.750 0.750 0.750 0.750 0.750 0.750 5,25

Payments (2a) 0.750 0.750 0.750 0.750 0.750 0.750 0.750 5,25

Budget line Commitments (1b) 0

Payments (2b) 0

Appropriations of an administrative nature financed from the envelope of specific programmes38

Budget line (3) 0

TOTAL appropriations Commitments =1a+1b+3 0.750 0.750 0.750 0.750 0.750 0.750 0.750 5.25

for DG EMPL Payments =2a+2b+3 0.750 0.750 0.750 0.750 0.750 0.750 0.750 5.25

38 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.

EN 12 EN

Year Year Year Year Year Year Year TOTAL

MFF

2028-

2034 2028 2029 2030 2031 2032 2033 2034

TOTAL operational

appropriations

Commitments (4) 0.750 0.750 0.750 0.750 0.750 0.750 0.750 5,25

Payments (5) 0.750 0.750 0.750 0.750 0.750 0.750 0.750 5,25

TOTAL appropriations of an administrative nature financed from the envelope for

specific programmes (6) 0 0 0 0 0 0 0 0

TOTAL appropriations

under HEADING 2 Payments =4+6 0.750 0.750 0.750 0.750 0.750 0.750 0.750 5,25

of the multiannual

financial framework =5+6 0.750 0.750 0.750 0.750 0.250 0.250 0.250 5.25

==================================================================================================

Year Year Year Year Year Year Year TOTAL

MFF

2028-2034 2028 2029 2030 2031 2032 2033 2034

• TOTAL

operational

appropriations (all

operational

headings)

Commitments (4) 0 0 0 0 0 0 0 0

Payments (5) 0 0 0 0 0 0 0 0

• TOTAL appropriations of an

administrative nature financed from

the envelope for specific programmes

(all operational headings)

(6) 0 0 0 0 0 0 0 0

TOTAL

appropriations

Under

Heading 1 to 3

Commitments =4+6 0.750 0.750 0.750 0.750 0.750 0.750 0.750 5,25

EN 13 EN

of the multiannual

financial framework Payments =5+6 0.750 0.750 0.750 0.750 0.750 0.750 0.750 5,25

(Reference amount)

The estimated impact on expenditure and staffing for 2028 and beyond is added for illustrative purposes only and does not pre-judge the next

Multiannual Financial Framework. The source of financing and scope of Union financial commitment in the post-2027 period remain subject to

the outcome of interinstitutional negotiations on the MFF 2028-2034 and thereafter shall be determined through the annual budgetary procedure.

All appropriations and staffing allocations as of 2028 are indicative.

Heading of multiannual financial framework 2028

-2034 4 ‘Administrative expenditure’39

DG: EMPL Year Year Year Year Year Year Year TOTAL

MFF

2028-2034 2028 2029 2030 2031 2032 2033 2034

 Human resources 0,299 0,299 0,299 0,299 0,299 0,299 0,299 2,093

 Other administrative expenditure, Budget line 20.020602 0, 164 0, 164 0.164 0,164 0,164 0,164 0,164 1,148

TOTAL DG

EMPLAppropriations 0,463 0,463 0,463 0,463 0,463 0,463 0,463 3,241

DG: EMPL Year Year Year Year Year Year Year

TOTAL

MFF

2028-2034

 Other administrative expenditure 0 0 0 0 0 0 0 0

39 The necessary appropriations should be determined using the annual average cost figures available on the appropriate BUDGpedia webpage.

EN 14 EN

TOTAL appropriations under HEADING 4 of

the multiannual financial framework

(Total

commitments =

Total payments) 0,463 0,463 0,463 0,463 0,463 0,463 0,463 3,241

EUR million (to three decimal places)

Year Year Year Year Year Year Year TOTAL

MFF 2028-

2034 2028 2029 2030 2031 2032 2033 2034

TOTAL

appropriations under

HEADINGS 1 to 4

Commitments 1,213 1,213 1,213 1,213 1,213 1,213 1,213 8,491

of the multiannual

financial framework Payments 1,213 1,213 1,213 1,213 1,213 1,213 1,213 8,491

The estimated impact on expenditure and staffing for 2028 and beyond is added for illustrative purposes only and does not pre-judge the next

Multiannual Financial Framework. The source of financing and scope of Union financial commitment in the post-2027 period remain subject to

the outcome of interinstitutional negotiations on the MFF 2028-2034 and thereafter shall be determined through the annual budgetary procedure.

All appropriations and staffing allocations as of 2028 are indicative.

3.2.2. Estimated output funded from operational appropriations (not to be completed for decentralised agencies)

Indicate

objectives and

outputs

Year 2028

Year 2029

Year 2030

Year 2031

Enter as many years as necessary to show the

duration of the impact (see Section1.6) TOTAL

OUTPUTS

EN 15 EN

 Type 40

Aver

age

cost

N o

Cost N o

Cost N o

Cost N o

Cost N o

Cost N o

Cost N o

Cost Total

No

Total

cost

SPECIFIC OBJECTIVE No 1,2 and

3 41

…

- Output Consult

ant

1 0.750 1 0.750 1 0.750 1 0.750 1 0.750 1 0.750 1 0.750 7 5.25

- Output

- Output

Subtotal for specific objective No 1

SPECIFIC OBJECTIVE No 2 …

- Output

Subtotal for specific objective

TOTALS 7 5.25

40 Outputs are products and services to be supplied (e.g. number of student exchanges financed, number of km of roads built, etc.). 41 As described in Section 1.3.2. ‘Specific objective(s)’

EN 16 EN

3.2.3. Summary of estimated impact on administrative appropriations

(2)  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

3.2.3.3. Total appropriations

VOTED APPROPRIATIONS Year Year Year Year Year Year Year TOTAL

2028 -

2034 2028 2029 2030 2031 2032 2033 2034

HEADING 4

Human resources 0.299 0.299 0.299 0.299 0.2990.2990.299 2,093

Other administrative expenditure 0.164 0.164 0.164 0.164 0.1640.1640.164 1.148

Subtotal HEADING 4 0.463 0.463 0.463 0.463 0.463 0.463 0.463 3,241

Outside HEADING 4

Human resources 0.000 0.000 0.000 0.000 0.0000.0000.000 0,000

Other expenditure of an administrative

nature 0.000 0.000 0.000 0.000 0.0000.0000.000 0.000

Subtotal outside HEADING 4 0.000 0.000 0.000 0.000 0.000 0.000 0.000 0.000

TOTAL 0. 463 0. 463 0. 463 0. 463 0. 463 0. 463 0. 463 3,241

===================================================================

The estimated impact on expenditure and staffing for 2028 and beyond is added for illustrative

purposes only and does not pre-judge the next Multiannual Financial Framework. The source of

financing and scope of Union financial commitment in the post-2027 period remain subject to the

outcome of interinstitutional negotiations on the MFF 2028-2034 and thereafter shall be determined

through the annual budgetary procedure. All appropriations and staffing allocations as of 2028 are

indicative.

3.2.4. Estimated requirements of human resources

(1)  The proposal/initiative does not require the use of human resources

(2)  The proposal/initiative requires the use of human resources, as explained

below

3.2.4.1. Financed from voted budget

VOTED APPROPRIATIONS Year Year Year Year Year Year Year

2028 2029 2030 2031 2032 2033 2034

 Establishment plan posts (officials and temporary staff)

20 01 02 01 (Headquarters and

Commission’s Representation Offices)

1 1 1 1 1 1 1

EN 17 EN

20 01 02 03 (EU Delegations) 0 0 0 0 0 0 0

(Indirect research) 0 0 0 0 0 0 0

(Direct research) 0 0 0 0 0 0 0

Other budget lines (specify) 0 0 0 0 0 0 0

• External staff (in FTEs)

20 02 01 (AC, END from the ‘global envelope’)

1 1 1 1 1 1 1

20 02 03 (AC, AL, END and JPD in the EU Delegations)

0 0 0 0 0 0 0

Admin. Support line

• at

Headquarter s

0 0 0 0 0 0 0

[XX.01.YY.YY] • in EU

Delegations 0 0 0 0 0 0 0

(AC, END - Indirect research) 0 0 0 0 0 0 0

(AC, END - Direct research) 0 0 0 0 0 0 0

Other budget lines - Heading 4 0 0 0 0 0 0 0

Other budget lines - 07.200301 - Outside Heading 4

0 0 0 0 0 0 0

TOTAL 2 2 2 2 2 2 2

The human resources required will be met by staff from the DG who are already assigned to

management of the action and/or have been redeployed within the DG, together if necessary, with

any additional allocation which may be granted to the managing DG under the annual allocation

procedure and in the light of budgetary constraints.

The staff required to implement the proposal (in FTEs):

To be covered by

current staff

available in the

Commission

services

Exceptional additional staff*

To be financed

under Heading 7

or Research

To be financed

from BA line

To be financed

from fees

Establishment

plan posts

1 N/A N/A N/A

External staff

(CA, SNEs, INT)

1 N/A N/A N/A

Description of tasks to be carried out by:

EN 18 EN

Officials and temporary staff 1 AD will support the negotiation, prepare the implementing acts, organise meeting

with Member States.

External staff 1 external staff will support the official in charge

3.2.5. Overview of estimated impact on digital technology-related investments

There are no digital and IT costs under Heading 4.

TOTAL Digital

and IT

appropriations

Year Year Year Year Year Year Year TOTAL

MFF

2028 -

2034 2028 2029 2030 2031 2032 2033 2034

HEADING 4

IT expenditure (corporate)

0 0 0 0 0 0 0 0

Subtotal

HEADING 4 0 0 0 0 0 0 0 0

Outside HEADING 4

Policy IT expenditure on operational programmes

0 0 0 0 0 0 0 0

Subtotal outside

HEADING 4 0 0 0 0 0 0 0 0

TOTAL 0 0 0 0 0 0 0 0

3.2.6. Compatibility with the current multiannual financial framework

The proposal/initiative:

(9)  can be fully financed through redeployment within the relevant heading of the

multiannual financial framework (MFF)

.

The estimated impact on expenditure and staffing for 2028 and beyond is added for

illustrative purposes only and does not pre-judge the next Multiannual Financial

Framework. The source of financing and scope of Union financial commitment in the

post-2027 period remain subject to the outcome of interinstitutional negotiations on

the MFF 2028-2034 and thereafter shall be determined through the annual budgetary

procedure. All appropriations and staffing allocations as of 2028 are indicative.

(10)  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

(11)  requires a revision of the MFF

EN 19 EN

3.2.7. Third-party contributions

The proposal/initiative:

(12)  does not provide for co-financing by third parties

(13)  provides for the co-financing by third parties estimated below:

Appropriations in EUR million (to three decimal places)

Year Year Year Year Year Year Year

Total 2028 2029 2030 2031 2032 2033 2034

Specify the co-

financing body p.m. p.m. p.m. p.m p.m. p.m. p.m. p.m

TOTAL

appropriations

co-financed

3.3. Estimated impact on revenue

(14)  The proposal/initiative has no financial impact on revenue.

(15)  The proposal/initiative has the following financial impact:

 on own resources

 on other revenue

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

4. DIGITAL DIMENSIONS

4.1. Requirements of digital relevance

EN 1 EN

Reference to

the

requirement

Requirement description

Actors affected or

concerned by the

requirement

High-level

Processes Categories

R1

Article 6

Persons concerned and, where applicable,

employers, shall be able to submit requests for

social security documents falling within the scope

of this Regulation fully online using procedures

that comply with Regulation (EU) 2018/1724. The

online request procedure shall be user-friendly,

accessible and comply with the following

requirements:

(a) It shall enable the electronic identification

and authentication of the person

concerned and, where applicable, the

employer;

(b) It shall allow for the electronic provision

of the information, documents or

supporting evidence, referred to in Article

3(2) of Regulation (EC) No 987/2009,

necessary to process the request;

(c) It shall ensure that the final submission of

the request can be completed remotely;

(d) It shall provide the person concerned and,

where applicable, the employer with an

automatic acknowledgement of receipt

after the completed submission has been

• Issuers of social

security documents

• Holders of social

security documents

and applicants

Request social

security

documents

• Data

• Process digitalisation

and automation

• Digital public service(s)

EN 2 EN

completed, unless the document is issued

immediately;

(e) It shall notify the person concerned and,

where applicable, the employer,

electronically that the issuing procedure

has been completed.

R2

Article 7(1)

The competent institutions shall issue digital social

security documents in a format suitable for use in

the European Digital Identity wallet of the person

concerned, and where relevant, of the employer.

The digital social security documents shall comply

with the technical specifications adopted pursuant

to paragraph 11.

• Issuers of social

security documents

• Holders of social

security documents

and applicants

Issue digital

social security

documents

• Data

• Process digitalisation

and automation

• Digital solutions

• Digital public Service(s)

R3

Article 7(2)

By way of derogation from paragraph 1, the

competent institutions shall, at the request of the

person concerned or the employer, issue the social

security document in a standardised and accessible

physical format. Such a document shall include a

QR code or any other electronic features to

enhance its security, in accordance with the

technical specifications adopted pursuant to

paragraph 11.

• Issuers of social

security documents

• Holders of social

security documents

and applicants

Issue physical

documents

enhanced with

digital features

• Data

• Process digitalisation

and automation

• Digital solutions

• Digital Public Service(s)

R4

Article 7(3)

Each Member State shall communicate to the

Commission a list of issuers and shall keep that list

• Member States

Issue of social

security

• Data

• Process digitalisation

and automation

EN 3 EN

up to date. The Commission shall make those lists

available to the public through a secure channel

and in an electronically signed or sealed form

suitable for automated processing. With regard to

issuers of the portable document A1, the list shall

be communicated to the Commission by [date of

entry into force plus 12 months]. Member States

shall communicate the list of issuers of EHIC and

other social security documents falling within the

scope of this Chapter by [date of entry into force

plus 3 years].

documents • Digital solutions

• Digital Public Service(s)

R5

Article 7(4)

Before issuing a social security document, the

issuers shall verify the accuracy of the information

provided by the persons concerned and, where

applicable, by the employers in support of their

request, including by means of digital tools.

• Member States

Verify

information

before issuing

social security

documents

• Data

• Process digitalisation

and automation

• Digital solutions

R6

Article 7(5)

Where a social security document referred to in

paragraph 1 or 2 is revoked, the issuer shall

immediately notify the person concerned and,

where applicable, the employer, by electronic

means, except if other means are indicated by the

person concerned and, where applicable, the

employer.

• Issuer

• Holders of social

security documents

and applicants

Inform on

issuance and

revocation of

social security

documents

• Data

• Process digitalisation

and automation

• Digital solutions

• Digital Public Service(s)

R7

Article 7(6)

The issuers shall ensure that a person is able to

receive and store, within their own European • Member States Issue digital

social security

• Data

• Digital Public Service(s)

EN 4 EN

Digital Identity wallet, the digital social security

documents of their minor children and of a natural

person whom they legally represent.

documents of

legally

represented

persons

R8

Article 7(7)

Social security documents issued under paragraph

1 and 2 by one Member State shall be recognised

by verifiers in all other Member States.

• Member States

• Verifiers of social

security attestations

• Holders of social

security documents

Recognise social

security

documents

• Data

• Digital solutions

• Digital Public Service(s)

R9

Article 7(8)

Member States shall ensure that verifiers

established on their territory are equipped with the

necessary technical means to verify the social

security documents issued under this Article, in

order to confirm their authenticity, integrity and

validity. Verifiers shall be able to verify that:

(a) the document was issued by an authorised

institution;

(b) the data contained in the document has not

been tampered with since issuance;

(c) the document has not expired or been

revoked.

• Member States

• Verifiers

• Holders of social

security documents

Verify social

security

documents

• Data

• Process digitalisation

and automation

• Digital solutions

• Digital Public Service(s)

R10

Article 9(2)

From [date of entry into force plus 3 years],

Member States shall ensure that healthcare

providers on their territory are able to

electronically transmit the data contained in the

European Health Insurance Card of a patient from

another Member State, and all the data that need to

• Member States

• Healthcare

providers

• Insured persons

receiving treatment

Transmit data

for the

reimbursement

of costs under

the EU social

security

coordination

• Data

• Process digitalisation

and automation

• Digital solutions

• Digital Public Service(s)

EN 5 EN

be transmitted for the reimbursement process, to

the competent institutions of the Member State of

treatment.

rules

R11

Article 8

Competent institutions shall issue social security

documents to the person concerned and, where

applicable, the employer in compliance with the

deadlines established in accordance with paragraph

2.

• Issuers of social

security documents

• Holders of social

security documents

and applicants

Issue social

security

documents • Digital Public Service(s)

R12

Article 10(2)

The Commission shall establish, by means of

implementing acts, a common technical framework

to ensure interoperability between national portals

used to request the portable document A1 and the

public interfaces connected to the Internal Market

Information System for the declaration of posting

of workers and for the posting of drivers in road

transport, as provided for in Article 1(11) of

Directive (EU) 2020/1057. That technical

framework shall enable the reuse of relevant

submitted data across the procedures for the

request of the portable document A1 and the

submission of posting declarations, in compliance

with Regulations (EU) 2016/679 and (EU)

2018/1725 and the once-only principle.

• Commission

• Member States

• Portable document

A1 applicants

Requests for

portable

document A1

• Data

• Digital solutions

• Digital Public Service(s)

R14

Article 14(1)

Member States shall collect and transmit to the

Commission data on the implementation of

• Member States

• Commission Report • Data

EN 6 EN

Article 8(1) and Article 11(2).

R15 – Article

11(1)-(2)

Member States shall exchange, access and process

the data required to apply Regulations (EC) No

883/2004 and (EC) No 987/2009 via the Electronic

Exchange of Social Security Information (EESSI)

system, in accordance with its functional and

technical specifications laid down pursuant to

Article 78 of Regulation (EC) No 987/2009. When

exchanging data via the EESSI system, Member

States shall comply with the maximum time

periods laid down in Annex I of this Regulation.

Member States

Cross-border

information

exchange

Data

Process digitalisation and

automation

Digital Public Service

R16 - Article

7(10)

Interoperability of ESSPASS with EESSI and

other initiatives Interoperability Digital Public Services

4.2. Data

High-level description of the data in scope

Type of data Reference to the

requirement(s)

Standard and/or specification (if applicable)

EN 7 EN

Personal and non-personal data contained in

the digital social security documents

R2

R7

R8

R9

R10

As provided for in Article 7(11), data specifications for digital

social security documents will be defined through implementing

acts, in accordance with the examination procedure referred to in

Article 5 of Regulation (EU) No 182/2011. These specifications

will comply with the common standards, schemas, formats and

technical specifications established under the European Digital

Identity (EUDI) framework. They will also draw upon the work

undertaken during the ESSPASS pilot projects and the

recommendations of the Ad hoc group of the Administrative

Commission on ESSPASS.

Personal and non-personal data contained in

the physical social security documents

enhanced with digital features

R3

R8

R9

R10

As provided for in Article 7(11), data specifications for the

enhanced physical social security documents will be defined

through implementing acts, in accordance with the examination

procedure referred to in Article 5 of Regulation (EU)

No 182/2011. These specifications will also draw upon the work

undertaken during the ESSPASS pilot projects and the

recommendations of the Ad hoc group of the Administrative

Commission on ESSPASS.

Personal Identification Data (PID) attributes

held in the EUDI wallet

R2

R7

R8

R9

R10

The disclosure of PID attributes to the verifier will be performed

through EUDI wallet presentation protocols defined under the

EUDI framework.

Personal identification data or identifier and

other data required to request social security

R1 The identification and authentication in national portals and the

exchange of information for requesting social security documents

EN 8 EN

documents online R5 will follow the specifications and protocols used in the Member

States.

Data about issuers of social security

documents

R4 Issuers registration in the trust lists will follow the specifications

and protocols defined under the EUDI framework

Data regarding the implementation

of Article 8(1) and Article 11(2)

R13 The format and structure for the reporting obligation will be

defined through implementing acts, in accordance with the

examination procedure referred to in Article 11(2) of Regulation

(EU) No 182/2011.

Data required to apply Regulations (EC) No

883/2004 and (EC) No 987/2009, exchanged

between competent institutions – personal and

non-personal data

R15 Exchanges take place via the EESSI system in accordance with its

functional and technical specifications laid down pursuant to

Article 78 of Regulation (EC) No 987/2009.

Alignment with the European Data Strategy

The requirements are consistent with the objectives of the European data strategy. They facilitate secure access and interoperable exchange of

standardised data among relevant stakeholders across borders.

The requirements comply with the rights to privacy and data protection guaranteed in the Charter of Fundamental Rights of the European Union,

the Treaty on the Functioning of the European Union, the General Data Protection Regulation and the EU Data Protection Regulation.

No open data is processed under these requirements. The reporting obligation set out in Article 14 generates data exclusively for monitoring purposes,

without mandating the reuse of the reported information.

Alignment with the once-only principle

The requirements adhere to the once-only principle: social security documents, regardless of format, are issued once by national authorities, enabling

individuals and businesses to securely reuse them digitally without resubmitting the same data. These documents are verified cross-border after consent

is obtained.

EN 9 EN

Article 10(2) and (3) aim to implement the once-only principle to reduce administrative burdens and eliminate redundant data submissions when

requesting portable document A1.

High-level description of the data flows

Type of data Reference(s) to the

requirement(s)

Actors who

provide the data

Actors who

receive the data

Trigger for the data

exchange

Frequency (if

applicable)

Personal and non-personal data

contained in the digital social

security documents

R2

R7

Issuers Holders of

documents and

applicants

Issuance of digital

social security

documents

Personal and non-personal data

contained in the physical social

security documents enhanced

with digital features

R3 Issuers Holders of

documents and

applicants

Issuance of physical

social security

documents enhanced

with digital features

Personal Identification Data

(PID) attributes held in the

EUDI wallet

R9 Holders of

documents

Verifiers Request from the

verifiers and explicit

authorisation from the

holders

Personal and non-personal data

contained in the digital social

security documents

R9 Holders of

documents

Verifiers Request from the

verifiers and explicit

authorisation from the

holders

Personal and non-personal data

contained in the physical social

security documents enhanced

with digital features

R9 Holders of

documents

Verifiers Request from the

verifiers and holders’

presentation of the

physical documents

EN 10 EN

Personal identification data or

identifier and other data

required to request social

security documents online

R1 Applicants National portals

for requesting

social security

documents

Application for the

issuance of social

security documents

Data about issuers of social

security documents

R4 Issuers Commission Communication to

the Commission of

the trust lists of

issuers, any

subsequent update

Personal Identification Data

(PID) attributes held in the

EUDI wallet

R10 Verifiers of EHIC Authorities in

the Member

States of

treatment

Transfer of data for

reimbursement

processing

Personal and non-personal data

contained in the digital social

security documents

R10 Verifiers of EHIC Authorities in

the Member

States of

treatment

Transfer of data for

reimbursement

processing

Personal and non-personal data

contained in the physical social

security documents enhanced

with digital features

R10 Verifiers of EHIC Authorities in

the Member

States of

treatment

Transfer of data for

reimbursement

processing

Data regarding the

implementation of Article 8(1)

and Article 11(2)

R13 Member States Commission Reporting obligation

Data required to apply

Regulations (EC) No 883/2004 R15 Member States Member States

Need basis and within

the maximum time N/A

EN 11 EN

and (EC) No 987/2009 periods laid down in

Annex I

4.3. Digital solutions

High-level description of digital solutions

Digital solution

Reference(s)

to the

requirement(s)

Main mandated

functionalities

Responsible

body

How is accessibility

catered for?

How is reusability

considered?

Use of AI

technologies

(if applicable)

ESSPASS

issuing

infrastructure

R2

R3

Issuance,

management and

revocation of

digital social

security

documents and

physical social

security

documents

enhanced with

digital features

Member State

competent

authorities

For the digital social

security documents,

accessibility is addressed

through the Member

States’ implementation of

the EUDI wallets

(Article 5a(21) of

Regulation (EU)No

910/2014). For physical

documents, accessibility

requirements will be

defined in the technical

specifications to be

adopted through

implementing act, in

accordance with

For the digital social

security documents,

the solution is based

on the EUDI

framework and reuses

its core components,

such as the EUDI

trust framework, the

EUDI wallet, the PID

issuance

infrastructure, trust

registries and lists,

interoperability

specifications.

The EUDI trust

N/A

EN 12 EN

Article 7(11).

framework is also

being considered for

reuse in relation to

physical social

security documents.

ESSPASS

verifier

application/s

R8

R9

Verification of

digital social

security

documents and

physical social

security

documents

enhanced with

digital features

Member State

competent

authorities

The accessibility

requirements of the

verifiers’ application/s

interacting will be defined

through implementing

acts, in accordance with

Article 7(11).

As one of the

implementation

options, the

Commission may

provide a reference

implementation of the

application for reuse

and configuration by

Member States on a

voluntary basis. This

will be discussed with

Member States prior

to the implementation

phase. Details of the

verification

application will be

defined through

implementing acts, in

accordance with

Article 7(11).

As investments and

adaptations for

healthcare digital

systems are already

EN 13 EN

provided for under

the European health

data space, these

should be leveraged

to create synergies

that maximise their

impact and efficiency.

Online portals

for requesting

social security

documents

R1 Request of social

security

documents

Member State

competent

authorities

Responsibility for ensuring

the accessibility of

national portals rests with

the Member States.

Article 6(1) provides that

online request procedure

shall be accessible

Depending on a

Member State’s

digital landscape and

organisational

structure, existing

portals could be

updated to include

online requests for

additional social

security documents.

Alignment of the digital solution with applicable digital policies and legislative enactments

ESSPASS issuing infrastructure

Digital and/or sectorial policy (when these are

applicable)

Explanation on how it aligns

AI Act No use of AI is foreseen in the proposed Regulation.

EU Cybersecurity framework All security aspects of the issuing infrastructure, including the security

requirements for issuers of digital social security documents, the EUDI wallet

EN 14 EN

security features and the communication protocols between issuer and wallet, are

covered by the EUDI framework Regulation. The same security requirements for

the issuance of digital social security documents will also apply to the physical

documents enhanced with digital security features. They will be further detailed in

the technical specifications.

eIDAS The solution is based on the EUDI framework and reuses its core components. The

EUDI trust framework is also being considered for reuse in relation to physical

social security documents. These documents will include eIDAS-compliant

electronic signatures, providing the same level of assurance as digital social

security documents.

Single Digital Gateway and IMI The solution is built on the foundations established by the Single Digital Gateway

Regulation (SDGR), which mandates that Member States enable fully online access

to administrative procedures, such as A1 portable document requests, EHIC

applications, and pension claims, while ensuring the electronic issuance of outputs.

The solution standardises the format of these outputs to facilitate cross-border

verification and further extends digitalisation to all social security documents

within the scope of the proposed Regulation.

Others

Verifier application

Digital and/or sectorial policy (when these are

applicable)

Explanation on how it aligns

AI Act No use of AI is foreseen in the proposed Regulation.

EN 15 EN

EU Cybersecurity framework All security aspects of the verifier application, including the verification protocols,

will be compliant with the cybersecurity requirements defined under the EUDI

framework. They will be further detailed in the technical specifications.

eIDAS The verification of digital social security documents will comply with EUDI

protocols and standards, which are defined to support the implementation of eIDAS.

The physical documents enhanced with digital features will include eIDAS-

compliant electronic signatures, verifiable via the same verifier application.

Single Digital Gateway and IMI Interoperability with IMI.

Others

Portals to request ESSPASS attestations

Digital and/or sectorial policy (when these are

applicable)

Explanation on how it aligns

AI Act No use of AI is foreseen in the proposed Regulation.

EU Cybersecurity framework The proposed Regulation does not impose any additional cybersecurity

requirements.

eIDAS Portals should support login based on the Personal Information Data (PID)

presentation from the EUDI wallet.

Single Digital Gateway and IMI The Your Europe portal will serve as a possible single-entry point for applicants to

request the social security documents covered under the Single Digital Gateway

Regulation, redirecting them to the national portals for document requests.

Article 10 of the proposed Regulation (R13) address interoperability between

EN 16 EN

national portals for requesting the portable document A1 and the public interfaces

connected to the Internal Market Information System for the declaration of posting

of workers, currently under negotiations, and for the posting of drivers in road

transport.

Others

4.4. Interoperability assessment

High-level description of the digital public service(s) affected by the requirements

Digital public

service or category

of digital public

services

Description Reference(s) to the

requirement(s)

Interoperable

Europe Solution(s)

(NOT

APPLICABLE)

Other interoperability solution(s)

ESSPASS –

Request, issuance

and revocation of

social security

documents

This service, provided by

competent authorities in Member

States, enables applicants to

request and receive social security

documents either in a digital

format for use in the EUDI wallet

or as a physical document

enhanced by digital features.

R2

R3

R7

R13

// EUDI framework and wallet

ESSPASS -

Verification of social

This service, provided by

verifiers, enables holders of social

security documents to have their

R8

R9

EUDI framework and wallet

EN 17 EN

security documents documents instantly verified and

validated through digital means

(i.e. the verifier application).

For digital social security

documents, the service also allows

holders to confirm whether the

verifier is authorised to request

and verify the document.

Impact of the requirement(s) as per digital public service on cross-border interoperability

Request, issuance and revocation of social security documents

Assessment Measure(s) Potential remaining barriers (if applicable)

Alignment with existing digital and

sectorial policies

Please list the applicable digital and

sectorial policies identified

- Adoption of technologies and standards

set out under the EUDI Regulation

- Use of digital signatures in compliance

with the eIDAS Regulation (for physical

social security documents enhanced with

digital features)

- Compliance with GDPR

- Synergies with processes related to

EESSI (R 15)

Organisational measures for a

smooth cross-border digital public

services delivery

- Establishment of a modern and efficient

governance structure, comprising a

Committee under Regulation (EU)

No 182/2011 to support the Commission

EN 18 EN

Please list the governance measures

foreseen

in adopting implementing acts and an

Advisory Group on Digitalisation in

Social Security Coordination to provide

technical advice, operational support and

a community of practice for exchanging

experiences and knowledge.

- Registration of trusted issuers within the

trust framework and notification of the

corresponding trust lists to the

Commission.

- Mutual recognition of social security

documents

Measures taken to ensure a shared

understanding of the data

Please list such measures

- Shared specifications adopted through

implementing acts, in accordance with

the examination procedure referred to in

Article 5 of Regulation (EU)

No 182/2011.

- Advisory Group providing expertise to

the Commission in the early preparation

of implementing acts before submitting to

the Committee.

Use of commonly agreed open

technical specifications and

standards

Please list such measures

- Adoption of technical specifications for

digital social security documents as

provided for in Article 7(1)

- Adoption of technical specifications for

physical social security documents

enhanced with digital features as

provided for in Article 7(2)

Potentially high impact for authorities with lower

levels of technological maturity

Verification of social security documents

EN 19 EN

Assessment Measure(s) Potential remaining barriers (if applicable)

Alignment with existing digital and

sectorial policies

Please list the applicable digital and

sectorial policies identified

- Adoption of technologies and standards

set out under the EUDI Regulation

- Use of digital signatures in compliance

with the eIDAS Regulation (for physical

social security documents enhanced with

digital features)

- Synergies with e-Health initiatives using

the EUDI wallets

Organisational measures for a

smooth cross-border digital public

services delivery

Please list the governance measures

foreseen

- Establishment of a modern and efficient

governance structure, comprising a

Committee under Regulation (EU)

No 182/2011 to support the Commission

in adopting implementing acts and an

Advisory Group on Digitalisation in

Social Security Coordination to provide

technical advice, operational support and

a community of practice for exchanging

experiences and knowledge.

- Registration of authorised verifiers in

accordance with the EUDI trust

framework.

Measures taken to ensure a shared

understanding of the data

Please list such measures

- Shared specifications adopted through

implementing acts, in accordance with

the examination procedure referred to in

Article 5of Regulation (EU)

No 182/2011.

- Advisory Group providing expertise to

the Commission in the early preparation

of implementing acts before submitting to

EN 20 EN

the Committee.

Use of commonly agreed open

technical specifications and

standards

Please list such measures

- Adoption of technical specifications for

verification of social security documents,

regardless of format, as provided for in

Article 7(11)

4.5. Measures to support digital implementation

High-level description of measures supporting digital implementation

Description of the measure

Reference(s) to the

requirement(s)

Commission

role

(if applicable)

Actors to be

involved

(if42 applicable)

Expected timeline

(if applicable)

Adoption of implementing acts on the

functional, operational and technical

specifications, as provided for in

Article 7(1) (2) (11).

R2

R3

R7

R8

R9

Preparing and

adopting the

implementing

acts

Commission,

Committee

composed of

representatives

of Member

States

42

EN EN

EUROPEAN COMMISSION

Strasbourg, 15.9.2026 COM(2026) 980 final

2026/0271 (COD)

Proposal for a

REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL

on digitalising the coordination of social security systems, laying down a framework for

the European Social Security Pass (ESSPASS) and amending Regulations (EC) No

883/2004, (EC) No 987/2009 and (EU) No 2018/1724

{SEC(2026) 980 final} - {SWD(2026) 981 final} - {SWD(2026) 982 final} -

{SWD(2026) 983 final}

(Text with EEA relevance)

EN 1 EN

EXPLANATORY MEMORANDUM

1. CONTEXT OF THE PROPOSAL

• Reasons for and objectives of the proposal

The free movement of persons is one of the four fundamental freedoms at the heart of the

EU single market and a major achievement of European integration. By facilitating

labour mobility, it helps address labour and skills shortages and supports economic growth

and competitiveness across Member States. Beyond its benefits for Europe’s economy, the

free movement of persons expands professional and personal opportunities for individuals,

encourages cultural exchange and a shared sense of community, thereby advancing the

integration of the European Union.

The effective exercise of this freedom requires clear rules, robust enforcement mechanisms

and coordinated policies among Member States to support mobility while guaranteeing

fairness, legal certainty and the protection of rights. A key pillar in this regard is the EU

social security coordination framework1. This ensures that individuals continue to receive

their benefits – such as pension, unemployment and family benefits – and are covered by

healthcare when moving to, staying in or travelling in other Member States. A revision to

modernise this framework has recently been provisionally agreed by the European Parliament

and the Council2. Once adopted, the revised framework will facilitate the exercise of citizens’

rights, achieve greater legal clarity and ease of enforcement, and make it easier for businesses

and workers to engage in short-term cross-border activities and business trips.

At the same time, there is still strong potential to make the EU social security coordination

rules easier to apply. This can be achieved through increased and better use of digital

technologies in this area, as part of the EU broader efforts to: (i) simplify procedures; (ii)

reduce burdens on individuals, businesses and national, regional and local authorities; and (iii)

support competitiveness in the EU single market.

Digital transformation is a central part of the EU’s strategic priorities, serving as a key

driver of innovation and competitiveness. In line with the Digital Decade policy

programme 2030 and the European Declaration on Digital Rights and Principles, the Union is

promoting the development of seamless and human-centric digital public services across

Europe.

Recent reports by Enrico Letta and Mario Draghi on the future of the single market and

Europe’s competitiveness emphasise the urgency of accelerating this digital transformation

and removing barriers that undermine the single market’s dynamism. Similarly, the 2026

single market and competitiveness report identifies persistent gaps in cross-border digital

1 Regulation (EC) No 883/2004 on the coordination of social security systems and Regulation (EC)

No 987/2009 laying down the procedure for implementing Regulation (EC) No 883/2004. These

Regulations also apply to Norway, Iceland, Liechtenstein and Switzerland. Specific rules are in place in

the agreements with the United Kingdom. 2 The European Parliament approved the provisional agreement on 7 July 2026, whereas formal adoption

by the Council is still pending.

EN 2 EN

services and mobility challenges as significant obstacles – especially for small and medium-

sized enterprises (SMEs)3 – hindering Europe’s economic expansion and the seamless

functioning of the digital single market. Furthermore, the 2025 EU Startup and Scaleup

Strategy highlights the negative impact of regulatory fragmentation on the ability of startups

and scaleups to operate efficiently within the single market and to attract talent.

While the Commission and Member States have already taken steps under the current

framework to digitalise cross-border procedures, services and data exchanges in the area of

social security coordination, further action at EU level is required. This aligns with repeated

calls from the European Parliament, including in its 2021 Resolution on a European Social

Security Pass, echoed in the Commission’s Communication on digitalisation in social security

coordination, in the Council Conclusions of November 2023 and in the above-mentioned

Letta report. It also responds to requests from European social partners4 and civil society

organisations to strengthen the protection of workers’ social security rights, enhance

enforcement and facilitate labour mobility, while reducing administrative burdens.

The Electronic Exchange of Social Security Information (EESSI) system5 has

significantly improved the handling of cases under the EU social security coordination rules.

Covering areas such as sickness, accidents at work, pensions, unemployment and family

benefits, EESSI enables over 3.100 social security institutions across the 32 participating

countries (the 27 Member States as well as Iceland, Liechtenstein, Norway, Switzerland and

the United Kingdom) to exchange information electronically and securely, replacing paper-

based communication. Since its implementation, more than 42 million cases have been

handled, delivering tangible benefits for millions of individuals who now experience a more

efficient processing of their social security claims.

Despite this progress, some obstacles to fully realising the benefits of the system remain.

These include delays in the treatment of cross-border pension cases, which risk leaving

individuals without timely access to their entitlements, thus undermining people’s trust in the

EU’s social security coordination framework. The experience of implementing EESSI has

also revealed the technical, procedural and coordination challenges involved in the

digitalisation of cross-border social security procedures. Given the involvement of thousands

of institutions and the coverage of all branches of social security, more agile cooperation and

streamlined decision-making are necessary.

While improving the exchange of information among social security institutions through

EESSI is of paramount importance, it is only the first step. Further digitalisation is required

to:

3 See the 2024 SMET report: https://ec.europa.eu/internal_market/smet/_docs/2024/smet-report-

2024_en.pdf, p. 12. 4 BusinessEurope position paper: Stepping up EU simplification efforts in the field of social affairs,

ETUC contribution to the public consultation. 5 The EESSI project was launched in 2008, with the system entering into operations in 2019. For more

information see: Electronic Exchange of Social Security Information (EESSI) - Employment, Social

Affairs and Inclusion.

EN 3 EN

• reinforce the protection of individuals and workers by facilitating more effective

access to social security rights across Europe;

• reduce administrative hurdles and costs for individuals accessing social security

benefits in other Member States and for businesses operating across borders;

• increase the quality of cross-border public services;

• provide Member States with more effective tools to fight against fraud, thus

strengthening the protection of rights and fair mobility.

Challenges continue to exist in the exchanges of information between individuals, businesses

and national authorities in cross-border social security scenarios. Individuals often struggle to

prove their social security rights promptly when moving, travelling or working across borders.

At the same time, social security institutions, labour inspectorates and healthcare providers

lack efficient, secure ways to confirm this information across Member States. Meanwhile,

businesses – particularly small and medium-sized enterprises (SMEs) – encounter persistent

difficulties in seamlessly complying with requirements when sending workers to work

temporarily abroad6.

The problem arises from:

• existing procedures for requesting, issuing and verifying social security documents,

including the European Health Insurance Card (EHIC), which are still largely paper-

based;

• limited cross-border interoperability and standardisation in documents’ format and

verification methods;

• processes that do not sufficiently accommodate the needs of individuals and

businesses.

This leads to inefficiencies, unnecessary procedural complexity, increased costs, time losses,

errors and fraud. This potentially makes it harder to easily access social security benefits in

other Member States, thus creating concrete barriers to intra-EU mobility7, freedom of

establishment and cross- border service provision.

To that end, the European Social Security Pass (ESSPASS) pilot project was launched as

part of the European Pillar of Social Rights action plan. The project’s aim was to explore a

digital solution for the issuing and cross-border verification of social security documents.

Between 2021 and 2025, digital solutions were tested for procedures related to the portable

6 The administrative hurdles linked to procedures for the posting of workers are considered one of the

most significant obstacles preventing businesses from expanding across Member States, according to

the 2025 Single Market Strategy. See also the SMET report, page 12. 7 The Draghi report emphasises that fears of losing access to social protection or facing difficulties

accessing social security in other Member States discourage individuals from relocating – even though

EU legislation ensures the portability of social security rights.

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document A18 and the EHIC, with the participation of a significant number of Member

States9.

The pilot’s success clearly demonstrated that the ESSPASS can:

• empower individuals to prove and exercise their rights more easily and securely

across borders;

• reduce administrative burdens for businesses;

• enhance fraud prevention through real-time verification of standardised digital

documents;

• improve efficiency for national authorities by reducing paper-based processes.

In light of these proven benefits, the Commission has announced a legislative framework

governing the ESSPASS in the Single Market Strategy and its 2026 Work Programme, as a

key component of the Fair Labour Mobility Package. The proposed regulation sets out

rules for swift deployment of the ESSPASS across all Member States. It establishes a

dedicated legal instrument covering the cross-border digital data exchanges and

procedures necessary to ensure effective implementation and enforcement of EU social

security coordination rules, including those facilitated through the EESSI system.

A standalone regulation addressing all digital aspects of social security coordination is

necessary to ensure legal clarity, consistency, enforceability and flexibility. These objectives

cannot be fully achieved through fragmented provisions within the existing social security

coordination framework. A dedicated legal instrument would establish the necessary legal

requirements, technical specifications and standards, interoperability requirements,

governance arrangements, and robust security and data protection safeguards. It would also

ensure that the corresponding binding implementation measures are applied uniformly and

effectively across all Member States. Furthermore, such an approach would provide greater

flexibility to accommodate future technological developments. By separating the digital

aspects from the core EU social security coordination framework, the proposed regulation

would enable timely updates to technical requirements, without necessitating amendments to

that framework. It would focus exclusively on the digitalisation of social security

coordination, thereby complementing the existing legal framework.

The proposed regulation will support a smooth transition from the ESSPASS pilot phase to

full-scale implementation. It will apply to the portable document A1 one year after entry into

force, and to the European Health Insurance Card after three years. After three years, it will

8 The Portable Document A1 certifies which Member State's social security legislation applies to a

person in a cross-border work situation. 9 The DC4EU project tested the use of the European Digital Identity framework. It involved 80

institutions from 22 countries, with 15 countries (AT, DE, DK, PL, BE, NL, FR, LU, BG, CZ, ES, PT,

IT, FI, CH) participating in the social security coordination work packages.

The EBSI-Vector project explored a solution relying on blockchain technologies, engaging 52 partners

from 20 countries, with five countries (AT, BE, DE, IT, NL) involved in the social security

coordination use cases. These projects were financially supported by the Digital Europe programme.

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also cover all other social security documents, except those for which an assessment shows

that digitalisation under ESSPASS would not bring added value.

By building on the European Digital Identity (EUDI) and the Single Digital Gateway

frameworks, the proposed Regulation will give individuals secure, direct access to their social

security documents via their EUDI wallets, while national authorities will benefit from instant

verification capabilities and better ways to detect fraud. The introduction of binding time

limits for issuing documents will further improve predictability for individuals and

businesses, including the self-employed, by reducing unnecessary delays. This will help

ensure the effective and timely exercise of rights under the EU social security coordination

framework. In addition, it will facilitate cross-border operations for businesses by enabling

them to plan with confidence and avoid administrative bottlenecks linked to variable

processing times. Greater transparency and direct access to proof of entitlements will make it

easier for workers and self-employed to demonstrate their coverage when working across

borders, reduce administrative hurdles linked to paper-based procedures, and help prevent

fraud and abuse that can undermine their rights. For businesses, particularly SMEs,

compliance with posting requirements will be simplified by achieving convergence in

information requirements for portable document A1 requests and reducing redundant data

submission, in line with the ‘once-only’ principle. This will lower administrative costs,

improve legal certainty when sending workers abroad, and help ensure faster, more reliable

access to the required documents. Governance will also be strengthened and simplified by

replacing the current arrangements with a more agile and structured approach. A dedicated

group on digitalisation in social security coordination composed of Member States’

representatives will be created to help develop technical specifications, monitor progress and

share experiences. This group will continue the work previously carried out by the Technical

Commission for data processing, established pursuant to Article 73 of Regulation (EC)

No 883/2004 of the European Parliament and of the Council10, and the ad hoc group of the

Administrative Commission for the coordination of social security systems on ESSPASS.

Moreover, a committee composed of Member States’ representatives will support the

Commission in the adoption of implementing acts in accordance with the examination

procedure set out in Article 5 of Regulation (EU) No 182/2011 of the European Parliament

and of the Council11 (‘comitology Committee’). This will ensure the rules remain adaptable

and future-proof, while preserving their binding nature.

The proposed regulation concerns persons covered by the EU rules on social security

coordination as defined in Article 2 of Regulation (EC) 883/2004 which includes workers,

self-employed persons, pensioners, unemployed and economically inactive insured persons,

10 Regulation (EC) No 883/2004 of the European Parliament and of the Council of 29 April 2004 on the

coordination of social security systems (OJ L 166, 30.4.2004, p. 1,

ELI: http://data.europa.eu/eli/reg/2004/883/oj) 11 Regulation (EU) No 182/2011 of the European Parliament and of the Council of 16 February 2011

laying down the rules and general principles concerning mechanisms for control by the Member States

of the Commission’s exercise of implementing powers (OJ L 55, 28.2.2011, p. 13,

ELI: http://data.europa.eu/eli/reg/2011/182/oj )

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and their family members.These rules also apply, under Regulation (EU) No 1231/201012, to

third-country nationals who are legally residing in a Member State and are in a cross-border

situation. Regulation (EU) No 1231/2010 will therefore need to be amended to ensure that the

measures introduced by this proposal also apply to these third-country nationals.

In terms of territorial coverage, the proposed regulation will encompass all the Member States

and will also be relevant for the EEA countries, Switzerland and the UK, subject to the

applicable legal arrangements.

• Consistency with existing provisions in the policy area

The proposed regulation supports the objectives of the European Pillar of Social Rights and is

consistent with existing Union related legislation, particularly the EU social security

coordination rules. It complements these rules by establishing a dedicated legal instrument

governing all cross-border digital procedures and data exchanges necessary to facilitate their

effective implementation and enforcement. The proposal does not modify existing rights and

obligations established under the social security coordination framework and does not

compromise the level of individual protection it entails. The recent revision of this framework

modernised and simplified it. The proposal is consistent with that approach as it further

modernises and simplifies the application of this framework through digitalisation. By

promoting the use of digital technologies across the Member States, the proposal strengthens

the existing protection, by simplifying access to social security rights and services across

borders.

The proposal is consistent with the Single Digital Gateway Regulation (SDGR)13. The SDGR

requires Member States to ensure that individuals and businesses can access and complete

administrative procedures fully online, including: (i) requests to determine which social

security legislation covers the holder – resulting in the issuing of the portable document A1;

(ii) EHIC applications; and (iii) pension claims. To ensure that individuals can fully exercise

their rights to free movement without administrative obstacles, the proposal expands the

SDGR in order to extend the possibility to submit fully online requests to cover additional

social security documents.

The proposal forms part of the Fair Labour Mobility Package. The package includes measures

aimed at modernising and simplifying the application and enforcement of labour mobility and

social security coordination rules. This is to ensure that mobility within the EU is fair and

protects workers against exploitation or disadvantages linked to mobility, while fostering a

competitive and dynamic business environment that thrives on skills and innovation.

12 Regulation (EU) No 1231/2010 of the European Parliament and of the Council of 24 November 2010

extending Regulation (EC) No 883/2004 and Regulation (EC) No 987/2009 to nationals of third

countries who are not already covered by these Regulations solely on the ground of their nationality (OJ

L 344, 29.12.2010, p. 1, ELI: https://eur-lex.europa.eu/eli/reg/2010/1231/oj). 13 Regulation (EU) 2018/1724 of the European Parliament and of the Council of 2 October 2018

establishing a single digital gateway to provide access to information, to procedures and to assistance

and problem-solving services and amending Regulation (EU) No 1024/2012 (OJ L 295, 21.11.2018, p.

1, ELI: http://data.europa.eu/eli/reg/2018/1724/oj)

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• Consistency with other Union policies

The proposal supports the European goals of simplifying administrative procedures for

individuals, businesses and national, regional and local authorities: less red tape, more trust,

better enforcement. This helps relaunch EU competitiveness, in line with the Draghi report

and the EU competitiveness compass. It also complements the 28th regime to help companies

(start-ups and scale-ups in particular) overcome barriers to operating across Europe,

supporting growth, innovation and global competition.

The proposal builds on ongoing efforts at EU level to foster inclusive digital participation for

all people across Europe14 and to accelerate the digitalisation of cross-border public services.

This aligns with the Digital Decade programme’s targets of 100 % online provision of key

services and of individuals having access to secure electronic identification solutions by 2030.

The proposal also builds on existing cross-sectoral initiatives such as the SDGR and the

Once-Only Technical System, the European Digital Identity framework and potentially the

future European Business Wallets, the Internal Market Information System and the

Interoperable Europe Act.

The proposal complements other legislation, systems and tools supporting labour mobility,

cross-border provision of services, social protection, cross-border healthcare and enforcement

of labour law intended to further facilitate the mobility of individuals and workers in the EU,

simplify administrative procedures for people, businesses and national authorities, and uphold

workers’ rights. Such systems and tools include:

• the European tracking service on pensions;

• the proposal for an e-Declaration on the posting of workers which has been

provisionally agreed by the European Parliament and the Council and the Road

Transport Posting Declaration Portal15;

• the European Health Data Space, including MyHealth@EU infrastructure, set out in

Regulation (EU) 2025/327 of the European Parliament and of the Council16;

• initiatives to explore the potential for interoperability between different Member

States’ labour and social identity cards.

2. LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY

• Legal basis

The proposal is based on Article 48 of the Treaty on the Functioning of the European Union

(TFEU). That article gives the EU the power to adopt measures to coordinate Member States’

14 European declaration on digital rights and principles. 15 References are made to the road transport sector as this is the only transport mode for which a dedicated

EU posting declaration portal has been established. No equivalent system exists for the other transport

modes. 16 Regulation (EU) 2025/327 of the European Parliament and of the Council of 11 February 2025 on the

European Health Data Space and amending Directive 2011/24/EU and Regulation (EU) 2024/2847 (OJ

L, 2025/327, 5.3.2025, ELI: http://data.europa.eu/eli/reg/2025/327/oj)

EN 8 EN

social security systems in order to facilitate the free movement of workers and the protection

of their social security rights across the Union. While Article 48 TFEU applies to employed

and self-employed mobile workers and ‘their dependants’, Regulation (EC) No 883/2004,

based on what are now Articles 48 and 352 TFEU, extends social security coordination to

persons moving within the Union who do not pursue an economic activity. Article 48 TFEU

provides a solid legal basis for adopting measures complementary to the existing social

security coordination framework in order to digitalise cross-border social security procedures

and facilitate access to social security benefits and fair mobility within the EU.

• Subsidiarity (for non-exclusive competence)

The free movement of persons and freedom to provide services are fundamental freedoms of

the European Union. To fully benefit from these freedoms, individuals and businesses must

rely on efficient public services, including when accessing social security benefits or sending

workers to work abroad. Barriers to the seamless proof and cross-border verification of social

security rights and insurance status cannot be dealt with effectively by Member States on their

own. Digital solutions implemented by a single Member State will not ensure cross-border

interoperability and the recognition and verification of social security documents.

EU-level action will improve the proof and verification of social security rights and insurance

status. This in turn will improve access to benefits and healthcare, thus establishing a more

supporting environment for workers who are relocating or considering relocation within the

EU and in cross-border situations. Given the cross-border nature of the existing problems,

effective solutions are best pursued at EU level, rather than through individual efforts by

Member States. EU-level action will benefit mobile individuals by making their social

security rights more transparent and accessible, while reducing fraudulent and exploitative

practices. By reducing unnecessary administrative difficulties and complexities, EU action

will assist businesses operating across borders, while supporting national, regional and local

authorities by simplifying processes and strengthening cross-border cooperation. This will

improve understanding and implementation of the rules and make them easier to enforce,

while fostering trust in the EU’s social security coordination framework and Europe’s single

market.

EU action will also maximise the impact of prior EU investments, complementing key digital

EU initiatives such as the SDGR and the Once Only Technical System (OOTS), the EUDI

framework, the European Businesses Wallets, the Interoperable Europe Act and the European

Health Data Space. In this way, it will form part of a coherent and cohesive EU digital

landscape that serves the interests of the EU and its Member States. If the EU does not act

now, action by Member States would likely lead to fragmented, uncoordinated and

incompatible solutions that fail to integrate with existing EU initiatives. This could result in

suboptimal outcomes and be more costly to reverse at a later stage.

• Proportionality

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The proposal respects the principle of proportionality as it does not go beyond what is

necessary and appropriate for EU action. It establishes the ESSPASS framework for the

request, issuance and cross-border verification of social security documents created under the

EU social security coordination rules. This ensures interoperability, digital exchange and

mutual recognition of such documents, without interfering with national social security

systems. By relying on the existing EU framework (particularly the EUDI framework) instead

of building a completely new solution, the ESSPASS further adheres with the proportionality

principle, employing a cost-effective strategy which minimise costs and optimise resources

efficiently.

The proposal does not introduce any new declaration, reporting or documentation

requirements for employers or self-employed persons, nor does it alter the criteria for

determining the social security legislation applicable to a person in a cross-border situation.

• Choice of the instrument

Given the cross-border nature of the problem and the need to prevent regulatory

fragmentation, a regulation is considered the most suitable, effective and proportionate legal

instrument to achieve the defined policy objectives. As a directly applicable act, it ensures

uniform application across Member States, preventing fragmentation and providing legal

certainty and effectiveness. This also aligns with the identified legal basis and the existing

social security coordinaton framework, which it complements.

3. RESULTS OF EX POST EVALUATIONS, STAKEHOLDER

CONSULTATIONS AND IMPACT ASSESSMENTS

• Ex post evaluations/fitness checks of existing legislation

N/A

• Stakeholder consultations

From the outset, the Commission placed stakeholder engagement at the forefront of its

strategic planning, acknowledging its critical role in shaping effective policies. The

Commission launched the ESSPASS as a pilot project to actively involve Member States from

the early stages of development and to foster ownership. This ensured that the initiative is

both feasible and responsive to the needs and realities of those it aims to serve. The pilot

activities not only demonstrated the ESSPASS’s viability and benefits but also provided

valuable feedback, technical expertise and insight. These directly informed decisions on the

initiative’s subsequent development.

In line with the Better Regulation principles, the Commission conducted extensive

consultations to ensure that the perspectives and interests of all relevant stakeholders were

considered and integrated into the policymaking process. The consultation process gathered

feedback on the scale and nature of the problems to be addressed, the objectives of the

EN 10 EN

proposed initiative, the policy options under consideration, and their potential impacts –

including costs and opportunities for simplification. This comprehensive evidence gathering

included the following activities, some of them as part of a supporting study on digitalisation

in social security coordination:

– two surveys (March-April 2025) targeting social security institutions, healthcare

providers and enforcement authorities, with 87 responses from 32 countries;

– 97 stakeholder interviews (2025) with national authorities, social partners and

technical experts to assess costs, benefits and feasibility;

– two workshops (June 2025) with 62 and 44 participants respectively,

to validate problem definitions and policy options;

– meetings with experts involved in the ESSPASS pilot projects (2025-2026);

– seminars and exchanges as part of social security coordination, including dedicated

meetings on ESSPASS and impact estimates;

– an implementation dialogue on fair labour mobility (16 September 2025);

– a high-level meeting on digitalisation in social security coordination with Member

State representatives (30 September 2025);

– a hearing of EU social partners (6 November 2025), gathering the views of workers’

and employers’ organisations;

– a call for evidence on ESSPASS (14 January 2026-11 February 2026) and one on the

Fair Labour Mobility Package;

– a public consultation (22 January-16 April 2026).

These consultations revealed broad support for further digitalisation in social security

coordination and for the ESSPASS initiative as a means to simplify cross-border social

security procedures, facilitate access to social security benefits across borders, reduce fraud

and reduce administrative burdens for individuals, businesses and national authorities.

Stakeholders – including trade unions, employers and public authorities – emphasised the

need for strong enforcement mechanisms, simplified processes and real-time verification

mechanisms to increase effectiveness. There was broad consensus on the reuse of EUDI

Wallets as the primary digital solution. There was also broad consensus on ensuring a fallback

option – such as secure, verifiable and revocable physical documents – for those unable or

unwilling to use digital tools. Some concerns were raised about implementation costs and data

security.

The public consultation and the calls for evidence reinforced these findings, with 93% of

respondents to the public consultation supporting a standardised solution for the digitalisation

of social security documents, the portable documents and the EHIC. Delays in document

issuance, cross-border verification challenges and fraud risks were cited as major pain points,

while real-time verification and interoperability emerged as top priorities. Overall, the

consultation underscored the ESSPASS’s potential to boost fair labour mobility, combat fraud

and modernise social security coordination, provided it is designed inclusively, governed

robustly and integrated seamlessly with existing systems.

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• Collection and use of expertise

N/A

• Impact assessments

The proposal for a regulation is accompanied by an impact assessment report17, a draft of

which was submitted to the Regulatory Scrutiny Board (RSB) on 29 April 2026. The RSB

issued a positive opinion with reservations on 4 May 2026, and the impact assessment report

was revised in accordance with the Board’s recommendations. The RSB’s more detailed

technical comments were also addressed.

The impact assessment examined a range of policy options. The selected options draw on the

findings from the pilot activities, stakeholder insights and additional factors such as: (a)

consistency with EU objectives, particularly the EU’s simplification and digitalisation agenda;

(b) reliance on existing EU initiatives such as the SDGR and the EUDI framework to

minimise expenses and optimise resource use; and (c) the EU’s shift towards user-centricity

and privacy-by-design as well the need to address the digital divide.

Three policy options were assessed:

– Policy Option 1 establishing a solution enhancing the existing format of portable

documents and the EHIC and enabling their verification across borders. This

involves issuing the documents in a standardised format, with digital security

features, which can be either printed or stored electronically.

– Policy Option 2 introducing a solution for the issuing and instant verification of

portable documents and the EHIC, relying on the EUDI framework. Individuals and

businesses would be able to securely store these documents within their EUDI

Wallets. If they cannot or prefer not to use the EUDI Wallets, non-enhanced physical

documents would remain available.

– Policy Option 3 establishing a solution encompassing the main elements set out in

Policy Option 2. However, individuals and businesses who cannot or prefer not to

use EUDI Wallets would receive enhanced physical documents which can be verified

even when printed (as in Policy Option 1).

The following measures were common to all policy options to ensure their smooth

implementation and strengthen their impact on EU competitiveness and simplification:

– Enabling individuals across all Member States to request and receive portable

documents electronically, even those not covered by the SDGR.

– Introducing binding deadlines for national authorities to issue social security

documents, thus ensuring their timely availability for cross-border use without

compromising accuracy.

– Convergence between national information requirements for requesting the portable

document A1 as well as the possibility of using the multilingual public interface for

the declaration of posted workers (e-declaration) once established, to the extent there

17 SWD (2026) …

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would be overlap of information requirements with the e-declaration. This would

enable applicants to submit data only once (following the once-only principle), as

requested by stakeholders and several Member States during the negotiations on the

e-declaration. This would be in line with the overall EU objective to reduce

administrative hurdles for businesses operating across borders. Convergence in

information requirements would also ensure better alignment on checks conducted

before issuing the A1 form.

Following an analysis of the policy alternatives, Policy Option 3 was identified as the

preferred choice. That option was deemed the most effective at achieving the objectives, the

most efficient in terms of costs and benefits, and the option ensuring the highest level of

consistency with other EU policies.

The assessment indicates that the preferred option is likely to significantly reduce reliance on

paper-based processes by introducing standardised, simplified digital procedures for

requesting, issuing and verifying social security documents between Member States. This

ensures seamless recognition of documents throughout the EU while offering flexibility for

individuals on how data are stored and presented. Implementing this policy option is expected

to deliver significant benefits for individuals, national authorities, labour inspectorates,

healthcare providers and businesses. Among the advantages, document verification times will

be reduced to just a few seconds for documents stored in the EUDI Wallets and to around one

minute for non-Wallet documents. This is in contrast to the current 5 to 16 minutes for the

portable document A1 and 2 to 5 minutes for EHIC. Over a 12-year period, this efficiency is

expected to generate cost savings of between EUR 24 million to 72 million for verifiers (e.g.

labour inspectorates) and EUR 21 million to 64 million for businesses (this is particularly

relevant for SMEs, which constitute 99% of EU businesses) in relation to the portable

document A1. For EHIC verifications, healthcare providers’ savings are estimated at between

EUR 23 million and EUR 69 million.

Enhanced security is another key advantage. Digitally signed documents with instant

verification will make forgery almost impossible, unlike the current situation. Over a 12-year

period, this could lead to cost savings from reduced fraud of up to EUR 157 million for the

portable document A1 and EUR 120 million for the EHIC. Additionally, reduced use of

plastic – estimated at up to 1 482 tonnes – could yield up to EUR 161 million in savings.

The preferred option supports the application of the rules on the coordination of social

security systems, easing access to benefits and healthcare. It also fosters trust, fairness and

data protection by giving users control of their data and ensuring GDPR-compliant handling

of personal data. Social benefits include increased transparency and fairness: workers will

have direct access to portable documents A1 and will gain a clearer understanding of their

social security position and rights when posted abroad. With full knowledge of their social

security arrangements, workers will become less susceptible to fraudulent practices and will

gain easier access to benefits they might be entitled to in the host country.

The preferred option also supports competitiveness by simplifying procedures for companies

operating across borders and supports advancements in digitalisation and innovation.

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The use of EUDI Wallets for storing and sharing high-circulation documents like the EHIC

will accelerate wallet adoption. This will create a foundation for the future integration of

additional labour mobility documents through sector-specific legislation.

The preferred option includes upfront investments and annual maintenance costs. These

would be primarily borne by national public administrations, including ministries, social

security institutions and labour inspectors, as well as by healthcare providers. Individuals and

businesses are expected to face minimal expenses. Such expenses would mainly be related to

smartphone use if they want to store their social security coordination documents in the

national EUDI Wallets. Overall, total one-off EU costs (over a period of three years) are

estimated to be between EUR 186 million and EUR 218 million, with cumulative recurrent

costs amounting to EUR 278 million over the following 12 years (EUR 23.2 million

annually). The costs reflect the necessary infrastructure and integration efforts and are

balanced by projected long-term efficiencies and cost savings.

To support this investment, deployment should be eligible for EU funding, notably under the

successor instrument of the European Social Fund + (digitalisation of public services and

institutions) and the European Competitiveness Fund for the post-2027 programming period.

• Regulatory fitness and simplification

The initiative is expected to have a positive impact on competitiveness. Businesses are likely

to experience decreased costs thanks to reduced administrative hurdles and the shorter times

required to obtain and verify the portable document A1 and provide additional information in

cases of doubts about its validity. SMEs, which constitute 99% of EU businesses and typically

face greater challenges in meeting regulatory requirements due to their limited administrative

resources, are expected to benefit more than larger companies. This is especially the case in

sectors like construction and services, where posting and activities in two or more Member

States are more common. Easier compliance with requirements can lead to greater efficiency

in allocation of resources towards value-creating activities. This in turn can boost

productivity. Improved access to cross-border labour markets will enable businesses to take

advantage of a broader talent pool and optimise operations, making them more competitive in

both local and international markets. The initiative will also promote technological

advancement by encouraging digitalisation in public services and seamless access to services

for individuals and businesses. By adopting innovative solutions for the proof and cross-

border verification of social security rights and insurance status, the initiative strengthens

capacity for further innovations within the public sector. This should further contribute to EU

economic expansion and business competitiveness.

The proposal is consistent with the ‘Digital check’. It fully aligns with core e-government

principles:

• digital by default, promoting digital procedures as preferred choice, while still

offering alternative options;

• once-only principle, reducing redundant data submission;

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• interoperability by design, facilitating cross-border recognition and verification of

documents as well as cross-border data exchange, and reducing fragmentation;

• user-centricity, putting people at the centre and ensuring predictable processing

times;

• inclusiveness and accessibility, guaranteeing equal access to all, notably to persons

with disabilities, older people and individuals with limited digital skills by offering

the option to request enhanced physical documents;

• trustworthiness and security, promoting the protection of personal data and high

security standards;

• cross-border by default, establishing services available across borders and reducing

unnecessary barriers to mobility.

• Fundamental rights

The proposed regulation is expected to make it easier to coordinate social security systems by

easing access to social security benefits and healthcare across Europe (Articles 34 and 35 of

the Charter of Fundamental Rights of the European Union Charter). This is achieved through

improved proof and verification of social security rights and the insurance status of

individuals moving across the EU. No reduction in the baseline level of protection has been

identified.

By ensuring social security rights and documents are more easily transferable and verifiable

through simplified procedures and reduced administrative processing times, the initiative is

expected to have a positive impact on:

• the free movement of persons and workers, as provided for in Article 45 of the TFEU

and in Articles 15 and 45 of the Charter of Fundamental Rights;

• the freedom to provide services, as enshrined in Article 56 TFEU and Article 16 of

the Charter.

As a result, workers would be more likely to take advantage of cross-border job opportunities

and businesses would be more eager to operate across borders. The proposed regulation does

not place any limitations on these freedoms.

The proposal is also likely to have a positive impact on the right to good administration, as

provided for in Article 41 of the Charter of Fundamental Rights. By simplifying procedures

and reducing processing times, it is anticipated that requests and operations will be handled

within a reasonable time, thus increasing legal certainty for individuals and businesses.

The proposed regulation includes the processing of personal data. It should therefore ensure

that such processing complies with the requirements of Regulation (EU) 2016/679 of the

European Parliament and of the Council (the ‘General Data Protection Regulation’)18 and the

18 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, ELI: http://data.europa.eu/eli/reg/2016/679/oj)

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fundamental rights guaranteed in the Charter of Fundamental Rights, particularly the rights to

privacy and data protection in Articles 7 and 8 of the Charter, and in the TFEU, especially

Article 16 on the right to the protection of personal data. The preferred option is expected to

ensure a high level of security and data protection by giving users control, by minimising data

exposure, by guaranteeing selective disclosure, and by ensuring GDPR-compliant, secure and

transparent handling of personal data when using EUDI Wallets. Similarly, users will benefit

from legal safeguards when relying on enhanced physical documents.

4. BUDGETARY IMPLICATIONS

The proposal has very limited budgetary implications for the EU budget. The only operational

costs will be generated by organising meetings of the committee and the group on

digitalisation, and by supporting the Member States’ implementation of the digital solutions

established under the proposal. These expenses will be covered using existing internal budget

lines through redeployment of existing resources.

5. OTHER ELEMENTS

• Implementation strategy, implementation plans and monitoring, evaluation and

reporting arrangements

A comprehensive draft monitoring framework has been designed to monitor the

implementation and evaluate the initiative’s impact, thus ensuring it remains fit for purpose

and achieves the intended objectives. This framework will undergo further refinement based

on the ultimate legal specifications and implementation schedule. Progress will be tracked

through a set of operational, result and impact indicators linked to the specific objectives. The

framework will also help identify implementation challenges and help ensure that timely and

consistent implementation support is in place from the outset and throughout the rollout of the

initiative. The Commission, in close cooperation with Member States, will regularly collect

and analyse data, making use of existing reporting mechanisms. The data will be used to

identify implementation gaps and emerging implementation needs, assess the measure’s

efficiency, and provide the necessary evidence base for future evaluation.

The initiative could be evaluated no sooner than seven years following its entry into force to

assess the proposal’s actual impacts.

• Explanatory documents (for directives)

N/A

• Detailed explanation of the specific provisions of the proposal

Article 1 defines the subject matter, providing clarity as regards the proposal’s objectives.

Article 2 sets out the proposal’s material and personal scope by specifying the categories of

people and the social security branches to which the proposal applies.

EN 16 EN

Article 3 sets out the definitions of the main concepts used in the proposed regulation to

facilitate uniform interpretation and application.

Article 4 establishes the framework for the ESSPASS digital solution for the request,

issuance, cross-border verification, and recognition of social security documents, and outlines

its main features.

Article 5 determines the date from which Chapter I on the ESSPASS will apply to social

security documents. The deferred date of application is to give Member States sufficient time

to adapt to the new requirements.

Article 6 lays down an obligation for Member States to give individuals and businesses the

option to submit requests for the social security documents covered under the proposal fully

online using procedures that comply with Regulation (EU) 2018/172419.

Article 7 sets out the rules governing the issuance, validity and verification of social security

documents. It mandates a default digital format for these documents – intended for use in the

EUDI Wallets – while allowing for physical documents, enhanced with digital features to

strengthen their security. The article also provides for automatic notifications to the persons

concerned and the employers when documents are withdrawn and ensures cross-border

recognition and verification by designated verifiers to confirm authenticity, integrity and

validity. In addition, it confers implementing powers on the Commission to lay down the

functional, operational and technical specifications of the digital solution in accordance with

the examination procedure referred to in Article 5 of Regulation (EU) No 182/2011.

Article 8 introduces binding deadlines for the issuing of social security documents. This is to

prevent unnecessary delays, ensure the effective and timely exercise of rights under the EU

social security coordination rules and facilitate cross-border operations for businesses. The

article empowers the Commission to set document-specific deadlines through implementing

acts, subject to the examination procedure referred to in Article 5 of Regulation (EU)

No 182/2011.

Article 9 sets out specific provisions for the European Health Insurance Card.

Article 10 introduces convergence in information requirements for requests of the portable

document A1. This is to prevent inconsistencies across Member States in the verification of

the relevant facts before issuing such documents while streamlining request processes. The

Article also provides for a possible future technical interoperability between, on the one hand,

the national portals used to request the portable document A1 and, on the other hand, the

public interfaces connected to the Internal Market Information System for the posting of

drivers in the road transport sector and the posting declarations under Directive 2014/67/EU

of the European Parliament and of the Council20. The aim is to reduce administrative burdens

and promote reusability of data.

19 Regulation (EU) 2018/1724 of the European Parliament and of the Council of 2 October 2018

establishing a single digital gateway to provide access to information, to procedures and to assistance

and problem-solving services and amending Regulation (EU) No 1024/2012 (OJ L 295, 21.11.2018, p.

1, ELI: http://data.europa.eu/eli/reg/2018/1724/oj). 20 Directive 2014/67/EU of the European Parliament and of the Council of 15 May 2014 on the

enforcement of Directive 96/71/EC concerning the posting of workers in the framework of the

EN 17 EN

Article 11 reinforces the use of the EESSI system as the primary channel for cross-border data

exchanges between social security institutions under EU social security coordination rules.

The article provides that the system should continue to function in accordance with the

current technical and operational specifications. Any subsequent adaptations or enhancements

should be introduced via implementing acts, in accordance with the examination procedures

referred to in Article 5 of Regulation (EU) No 182/2011, to ensure their binding and uniform

application across all Member States. To further improve the trustworthiness of the system

and ensure that individuals have timely access to their social security benefits, the article also

introduces an obligation for Member States to comply with the maximum time periods for

exchanges through EESSI laid down in Annex I to the proposed Regulation. In addition, the

article empowers the Commission to adopt, where necessary, delegated acts to amend that

Annex.

Article 12 strengthens cooperation between Member States by providing a legal basis that

enables the electronic exchange of information to detect changes in circumstances affecting

social security rights and obligations and to better fight against fraud. The article empowers

the Commission to adopt technical arrangements through implementing acts, in accordance

with the examination procedure referred to in Article 5 of Regulation (EU) No 182/2011,

where the EESSI system is not deemed to be the most effective or appropriate exchange

method.

Article 13 creates a group on digitalisation in social security coordination to provide

operational support and establish a community of practice for exchanging experiences and

knowledge, thus facilitating cooperation among Member States.

Article 14 establishes a reporting obligation for Member States to ensure transparency and

accountability when implementing provisions related to Article 8(1) and Article 11(2).

Article 15 specifies the data protection requirements applicable to the processing of personal

data under the proposed regulation. It ensures that the processing of personal data carried out

pursuant to the proposed regulation complies with Regulation (EU) 2016/679 of the European

Parliament and of the Council and, where applicable, Regulation (EU) 2018/1725 of the

European Parliament and of the Council21.

Article 16 empowers the Commission to adopt delegated acts in accordance with Article 290

TFEU and lays down the conditions governing the exercise of that delegation.

Article 17 provides that the Commission will be assisted by a committee in adopting

implementing acts in accordance with Regulation (EU) No 182/2011.

Article 18 provides for the evaluation of the proposed regulation’s implementation and

effectiveness. Articles 19 and 20 provide for the amendment of Regulation 883/2004 and

provision of services and amending Regulation (EU) No 1024/2012 on administrative

cooperation through the Internal Market Information System (OJ L 159, 28.5.2014, pp. 11,

ELI: http://data.europa.eu/eli/dir/2014/67/oj) 21 Regulation (EU) No 2018/1725 of the European Parliament and of the Council of 23 October 2018 on

the protection of natural persons with regard to the processing of personal data by the Union

institutions, bodies, offices and agencies and on the free movement of such data, and repealing

Regulation (EC) No 45/2001 and Decision No 1247/2002/EC (OJ L 295, 21.11.2018, p. 39,

ELI: http://data.europa.eu/eli/reg/2018/1725/oj)

EN 18 EN

Regulation (EC) No 987/2009 of the European Parliament and of the Council to ensure their

alignment with the proposed regulation and the new governance framework, and to maintain

legal consistency.

Article 21 provides for the amendment of Annex II of Regulation (EU) 2018/1724 to include

in the scope of the Single Digital Gateway Regulation the online procedures for requesting the

social security documents falling within the scope of this Regulation.

Article 22 lays down the rules concerning the entry into force of the proposed regulation.

EN 19 EN

2026/0271 (COD)

Proposal for a

REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL

on digitalising the coordination of social security systems, laying down a framework for

the European Social Security Pass (ESSPASS) and amending Regulations (EC) No

883/2004, (EC) No 987/2009 and (EU) No 2018/1724

(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 48 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) The free movement of persons is a fundamental freedom guaranteed by the Treaty on

the Functioning of the European Union (TFEU) and a cornerstone of the Union single

market. For this freedom to be fully realised, it is essential that individuals, workers

and their families can effectively exercise their social security rights when moving to,

staying in, residing or working in another Member State.

(2) To that end, the Union has established a comprehensive legal framework under

Regulations (EC) No 883/200422 and (EC) No 987/200923 of the European Parliament

and of the Council. Those rules coordinate Member States’ social security systems to

ensure that individuals in cross-border situations retain access to social security

benefits such as pensions, unemployment benefits and healthcare. However, the proper

application of those rules requires efficient social security procedures that keep pace

with technological progress and evolving societal needs.

(3) Digitalisation in social security coordination is essential to increase the efficiency of

data exchanges, accelerate claims processing, streamline access to benefits and reduce

administrative hurdles for individuals, businesses and national authorities. It also helps

strengthen fraud prevention, thereby reinforcing trust in the Union’s social security

coordination framework and contributing to making mobility free and fair for all.

22 Regulation (EC) No 883/2004 of the European Parliament and of the Council of 29 April 2004 on the

coordination of social security systems (OJ L 166, 30.4.2004, p. 1,

ELI: http://data.europa.eu/eli/reg/2004/883/oj).

23 Regulation (EC) No 987/2009 of the European Parliament and of the Council of 16 September 2009

laying down the procedure for implementing Regulation (EC) No 883/2004 on the coordination of

social security systems (OJ L 284, 30.10.2009, p. 1, ELI: http://data.europa.eu/eli/reg/2009/987/oj).

EN 20 EN

(4) The complexity of cross-border data exchanges and the further digitalisation of

procedures in social security coordination require a dedicated legal instrument, capable

of adapting to future technological, social and policy developments. That legal

instrument should complement the Union rules on social security coordination, laid

down in Regulations (EC) No 883/2004 and (EC) No 987/2009, by dealing with the

digital systems and processes necessary for those rules’ effective implementation and

enforcement. Since the provisions of this act are intrinsically linked and should

operate in conjunction with the social security coordination Regulations and

complement them, these provisions also need to take the form of a regulation.

(5) Due to the technical specificity, interoperability requirements and rapidly evolving

nature of digital processes, it is appropriate to adopt the necessary rules in the form of

a separate legal instrument. This is to ensure legal clarity and uniform application

across the Union, and to provide the flexibility to accommodate emerging digital

developments, without requiring amendments to the Union rules on social security

coordination.

(6) In order to ensure legal certainty and consistency with Regulation (EC) No 883/2004,

the scope of this legal instrument should be aligned with the personal and material

scope laid down in that Regulation.

(7) It is necessary to lay down rules for the establishment and operation of the European

Social Security Pass (ESSPASS). This is a digital solution for the electronic request,

issuance and cross-border verification of social security documents, including the

European Health Insurance Card (EHIC). The ESSPASS should ensure that

individuals are able to swiftly prove their social security rights and should support the

seamless exercise of those rights in cross-border situations, while enabling social

security institutions, labour inspectorates and healthcare providers to efficiently and

securely verify the relevant information. This in turn would facilitate fraud checks and

strengthen enforcement. The ESSPASS should also simplify compliance with

applicable requirements for businesses engaging workers, and for self-employed, in

cross-border situations.

(8) The ESSPASS pilot phase from 2021 to 2025, launched under the European Pillar of

Social Rights action plan and supported by the Digital Europe programme, proved

both the technical feasibility and the practical benefits of the ESSPASS.

(9) Procedures related to the portable document A1 and the EHIC have already

demonstrated their potential to reduce administrative burden, while the pilot phase has

provided evidence of their technical feasibility. The ESSPASS framework should first

apply to the portable document A1, reflecting its advanced state of technical

preparedness. It should subsequently apply to the EHIC, and to the other social

security documents, except those for which an assessment demonstrates no relevance,

feasibility or cost-effectiveness.

(10) To avoid duplication of effort, the ESSPASS should build on and complement existing

Union digital initiatives, particularly Regulations (EU) 2018/172424, (EU) 2024/90325

and (EU) 910/201426 of the European Parliament and of the Council.

24 Regulation (EU) 2018/1724 of the European Parliament and of the Council of 2 October 2018

establishing a single digital gateway to provide access to information, to procedures and to assistance

and problem-solving services and amending Regulation (EU) No 1024/2012 (OJ L 295, 21.11.2018, p.

1, ELI: http://data.europa.eu/eli/reg/2018/1724/oj).

EN 21 EN

(11) Regulation (EU) 2018/1724 requires Member States to enable individuals and

businesses to complete certain procedures fully online. This includes requests to

determine which social security legislation covers the holder, resulting in the issuing

of the portable document A1, as well as applications for the EHIC and claims for

pension benefits. To ensure that individuals can fully exercise their rights to free

movement and labour mobility without administrative obstacles, the possibility to

submit requests fully online should be extended to cover the social security documents

within the scope of this Regulation. Annex II to Regulation (EU) 2018/1724 should

therefore be amended to include the online procedures for requesting the social

security documents falling within the scope of this Regulation.

(12) To maintain a human-centric approach to digitalisation and optimise Member States’

investments, reliance on the European Digital Identity Wallets as established by

Regulation (EU) 2024/1183 of the European Parliament and of the Council, in

combination with Regulation (EU) 2018/1724, is crucial. Those wallets provide a

harmonised, legally sound, highly secure and privacy-compliant mechanism for

securely storing and sharing digital identity data and documents.

(13) To promote efficiency and modernisation, digital social security documents should

become the default format. At the same time, it is essential that individuals and

businesses retain the right to request and receive physical social security documents.

This promotes inclusivity and avoids exacerbating inequalities in access to services.

The physical social security documents should be enhanced with standardised digital

features that enable their secure verification, thus helping to reduce the risk of fraud.

As those physical documents will contain digital features, they should fall within the

scope of this Regulation.

(14) Workers in cross-border situations often lack clear information about their social

security position. For instance, they might be unaware that employers have requested a

portable document A1 related to their cross-border activity or have had one issued.

Workers’ direct access to social security documents should therefore be facilitated,

improving transparency over social security rights and affiliation. This is expected to

reduce exposure to fraud and guarantee that workers swiftly receive the social security

benefits to which they are entitled.

(15) Given the importance of tackling cross-border social security fraud and reinforcing

mutual trust, Member States should properly verify the accuracy of the information

provided before issuing social security documents, exercising due diligence. The use

of digital tools should be promoted to support this process.

(16) Natural persons under legal representation, including minor children, might not have

access to a European Digital Identity Wallet. Therefore, legal representatives such as

parents, guardians or other duly authorised persons should be able to receive and store

the represented person’s digital social security documents in their own European

Digital Identity Wallet. This is necessary to facilitate access to digital documents of

persons under legal representation, which is particularly important when they need

medical care in emergencies.

25 Regulation (EU) 2024/903 of the European Parliament and of the Council of 13 March 2024 laying

down measures for a high level of public sector interoperability across the Union (Interoperable Europe

Act) (OJ L, 2024/903, 22.3.2024, ELI: http://data.europa.eu/eli/reg/2024/903/oj). 26 Regulation (EU) No 910/2014 of the European Parliament and of the Council of 23 July 2014 on

electronic identification and trust services for electronic transactions in the internal market and

repealing Directive 1999/93/EC (OJ L 257, 28.8.2014, pp. 73,

ELI: http://data.europa.eu/eli/reg/2014/910/oj

EN 22 EN

(17) To ensure equal access, the social security documents and the processes through which

they are requested, made available and shared should be accessible to persons with

disabilities in accordance with Directive (EU) 2016/2102 of the European Parliament

and of the Council27, and, where applicable, Directive (EU) 2019/882 of the European

Parliament and of the Council28.

(18) In order to ensure the timely exercise of the rights provided for in Regulation (EC) No

883/2004, competent institutions should be required to issue social security documents

to the person concerned and, where applicable, to the employer, within binding time

limits. Experience has shown that delays in the issuing of such documents can hinder

individuals’ timely access to benefits and create obstacles to the cross-border

operations of businesses. Given the importance of rapid access to healthcare during a

temporary stay abroad, the maximum deadline for the issuance of the European Health

Insurance Card should not exceed 24 hours from the submission of a complete request.

This should be achievable, as the only information to check is the actual insurance of

the person.

(19) To support seamless cross-border mobility, interoperability and synergies between the

ESSPASS and the Electronic Exchange of Social Security Information (EESSI)

system established in accordance with Regulation (EC) No 987/2009 should be

explored. Where appropriate, interoperability and synergies should also be explored

between the ESSPASS and other Union initiatives, including the Once-Only Technical

System, the proposed European Business Wallets, the Internal Market Information

(IMI) System and digital initiatives in the areas of posting of workers, pension

tracking, labour law, company law, taxation and digital health.

(20) The digitalisation of the EHIC under the ESSPASS will further improve individuals’

access to medically necessary healthcare during temporary stays in other Member

States. This in turn will enable healthcare providers across Europe to verify insurance

status swiftly and accurately, thus reducing instances of EHIC refusal and

inappropriate use of the card. To facilitate faster, more accurate and more secure

handling of reimbursement claims under Union social security coordination rules and

improve overall efficiency, it is crucial for healthcare providers to streamline the

transmission of relevant data through automated means. This should be done while

complying with data protection rules and the principle of proportionality. The

investments and adaptations for healthcare digital systems already provided for under

the European Health Data Space should be leveraged to create synergies that maximise

the efficiency of the digital healthcare systems, notably where interaction with the

EUDI Wallets is envisaged in both domains.

(21) The essential data required for requesting the portable document A1 should be aligned

across Member States. This is to ensure consistent verification of the facts relevant for

determining the applicable legislation, which is essential to help detect incorrect

declarations and fraud, as well as to reduce the administrative burden on employers

posting workers. Furthermore, national portals for requesting the portable document

A1 could be able to interoperate, through a streamlined technical implementation, with

the public interfaces connected to the Internal Market Information System (IMI) so

27 Directive (EU) 2016/2102 of the European Parliament and of the Council of 26 October 2016 on the

accessibility of the websites and mobile applications of public sector bodies (OJ L 327, 2.12.2016, p. 1,

ELI: http://data.europa.eu/eli/dir/2016/2102/oj).28 Directive (EU) 2019/882 of the European Parliament and of the Council of 17 April 2019 on the

accessibility requirements for products and services (OJ L 151, 7.6.2019, p. 70,

ELI: http://data.europa.eu/eli/dir/2019/882/oj).

EN 23 EN

that common data can be submitted only once and then re-used where possible, in line

with the ‘once-only’ principle. Such possible interoperability should reduce

administrative burden for businesses and also facilitate cross-border provision of

services, in line with the Commission’s simplification objectives. To inform and

strengthen the development work, the Commission, with Member States’ support,

should also evaluate the cost-benefit ratio of the simplification and administrative

burden reduction, compatibility with existing systems and alignment with ongoing and

future Union initiatives, in particular any updates to the IMI regulatory framework.

Any interoperability measures should be consistent with Regulation (EU) 2018/1724

and facilitate compliance with the requirements applicable to the fully online

procedure and the once only principle for requesting the determination of the

applicable social-security legislation.

(22) ESSPASS is intended to complement the EESSI system. While ESSPASS provides a

solution for individuals and businesses to digitally interact with national authorities,

this Regulation should also govern exchanges between social security institutions,

especially those facilitated through the EESSI system. To ensure efficiency and

consistency, the EESSI system should remain the primary means for such exchanges.

(23) A comparative study by the Administrative Commission for the coordination of social

security systems has demonstrated that the processing of cross-border social security

cases takes on average four times longer than comparable national cases, across all

branches of social security. It is therefore essential to introduce measures to prevent

unnecessary delays in the treatment of cross-border cases caused by the late exchange

of data.

(24) The effective prevention and detection of errors and fraud in cross-border social

security matters requires efficient information exchange and close cooperation

between Member States. It is therefore necessary to lay down rules for data exchanges

in cases where the EESSI system cannot be used effectively. Those rules should

provide competent authorities and institutions with greater legal certainty and a robust

legal basis for exchanging data to detect fraud and inaccuracies in the information

underpinning rights provided for under Regulation (EC) No 883/2004, and for

verifying data through cross-checking with other Member States’ authorities and

institutions via electronic exchange or secure direct database access. All requests for

information and responses should remain necessary and proportionate.

(25) To support the consistent implementation of this Regulation and establish a

community of practice for exchanging experiences and knowledge, a group on

digitalisation in social security coordination should be established, composed of two

representatives of each Member State, combining technical and policy expertise on

digital aspects in the social security coordination field, and representatives of the

Commission. The details of its composition should be laid down in its rules of

procedure. That group should also continue the work previously carried out by the

Technical Commission for data processing, established pursuant to Article 73 of

Regulation (EC) No 883/2004, and the ad hoc groups of the Administrative

Commission for the coordination of social security systems, including the one on the

ESSPASS. To ensure the effective implementation of the ESSPASS framework, which

builds on the European digital identity framework, the Digitalisation Group should

cooperate, when relevant, with the Administrative Commission for the coordination of

social security systems and the European Digital Identity Cooperation Group.

EN 24 EN

(26) The European Labour Authority (ELA) should continue to play a crucial role in

supporting Member States’ efforts to digitalise cross-border social security processes.

This should consist in particular in facilitating the regular exchange of good practices

and experiences, promoting the effective use of digital tools, and providing capacity-

building measures such as training and knowledge-sharing initiatives, to boost national

authorities’ digital readiness. The ELA should also continue to raise awareness among

individuals, employers and other relevant stakeholders such as healthcare providers,

through targeted information campaigns, guidance materials and outreach activities.

This should help improve understanding and transparency regarding cross-border

social security rights and obligations, and regarding the available digital tools.

(27) Any processing of personal data under this Regulation should be undertaken in

accordance with Regulations (EU) 2016/679 and (EU) 2018/1725, and Directive

2002/58/EC29. Personal data should be processed under this Regulation only for the

specific purposes set out therein and Regulations (EC) No 883/2004 and (EC) No

987/2009, without affecting further processing for archiving purposes in the public

interest in accordance with Articles 5(1)(b) and 89 of Regulation (EU) 2016/679.

(28) This Regulation establishes a legal basis for the storage and processing of the data

contained in the social security documents for the purposes of proving and verifying

social security rights in cross-border situations. Personal data to be processed under

this Regulation should be data contained in these social security documents. That

personal data should concern, in particular, the information needed to digitally identify

natural persons, to facilitate the faster and more accurate exercise of rights under

Regulation (EC) No 883/2004, and to verify the validity and content of the

information and documents exchanged. This data shall belong to the following

categories of data: name, date and place of birth, address, personal identification

number, professional data and health data. In applying this Regulation, that personal

data will be handled by Member States’ issuers and verifiers. The Regulation limits

the storage period of personal data to the period strictly necessary for their

verification. The measures provided for in this Regulation are proportionate, as they

are strictly confined to what is required for verifying rights, managing social security

cases, ensuring compliance and combating fraud. Robust safeguards – including data

minimisation, access control and encryption – should be implemented in order to

ensure minimal intrusion while implementing acts should specify the common data

models.

(29) To ensure uniform conditions for the implementation of this Regulation, the power to

adopt acts in accordance with Article 290 TFEU should be delegated to the

Commission in respect of the list of social security documents for which the

application of the ESSPASS framework does not provide any added value and

amendments to Annex I. It is of particular importance that the Commission carry out

appropriate consultations during its preparatory work, including at expert level, and

that those consultations be conducted in accordance with the principles laid down in

the Interinstitutional Agreement of 13 April 2016 on Better Law-Making30. In

particular, to ensure equal participation in the preparation of delegated acts, the

European Parliament and the Council receive all documents at the same time as

29 Directive 2002/58/EC of the European Parliament and of the Council of 12 July 2002 concerning the

processing of personal data and the protection of privacy in the electronic communications sector

(Directive on privacy and electronic communications) (OJ L 201, 31.7.2002, p. 37). 30 OJ L 123, 12.5.2016, p. 1, ELI: http://data.europa.eu/eli/agree_interinstit/2016/512/oj.

EN 25 EN

Member States' experts, and their experts systematically have access to meetings of

Commission expert groups dealing with the preparation of delegated acts.

(30) In order to ensure uniform conditions for the implementation of this Regulation,

implementing powers should be conferred on the Commission to specify the

functional and technical specifications and procedures regarding social security

documents, specify the deadlines for issuing social security documents, lay down

common information requirements for requesting the portable document A1, establish

a common technical framework to ensure interoperability between national portals for

requesting that document and the public interfaces connected to IMI for the

declaration of posting of workers and drivers, specify future functional and technical

specifications of the EESSI system with regard to certain areas, establish a common

approach for the secure exchange of, or access to, data necessary for checks on the

correct application or enforcement of Regulations (EC) No 883/2004 and (EC) No

987/2009, and specify the format and structure of the Member States’ reports on the

implementation of this Regulation. Those powers should beexercisedin accordance

with Regulation (EU) No 182/2011 of the European Parliament and of the Council31.

(31) For reasons of clarity and consistency with this Regulation, obsolete provisions in

Regulations (EC) No 883/2004 and (EC) No 987/2009 related to the governance of

electronic data exchanges should be deleted. Those Regulations should therefore be

amended accordingly.

(32) To allow Member States sufficient time to adapt their administrative and technical

arrangements to the development of the ESSPASS, the application of the provisions

concerning the ESSPASS should be deferred.

(33) The European Data Protection Supervisor was consulted in accordance with

Article 42(1) of Regulation (EU) 2018/1725 [and delivered an opinion on …].

(34) Since the objectives of this Regulation, namely the establishment of a uniform, secure

and interoperable digital framework for the request, issuance and cross-border

verification of social security documents, as well as for the cross-border exchange of

social security information, cannot be sufficiently achieved by Member States acting

individually but can rather, by reason of the cross‑border nature and scale of the

action, be better achieved at Union level, the Union may adopt measures in accordance

with the principle of subsidiarity as set out in Article 5 of the Treaty on European

Union. In accordance with the principle of proportionality, as set out in that Article,

this Regulation does not go beyond what is necessary to achieve its objectives.

HAVE ADOPTED THIS REGULATION:

Article 1

Subject matter

1. This Regulation sets out rules for the digitalisation of cross-border exchanges of

social security information which facilitate the effective application and enforcement

of Regulations (EC) No 883/2004 and (EC) No 987/2009.

31 Regulation (EU) No 182/2011 of the European Parliament and of the Council of 16 February 2011

laying down the rules and general principles concerning mechanisms for control by the Member States

of the Commission’s exercise of implementing powers (OJ L 55, 28.2.2011, p. 13,

ELI: http://data.europa.eu/eli/reg/2011/182/oj).

EN 26 EN

2. In particular, the Regulation lays down rules:

(a) on the establishment and operation of the European Social Security Pass

(ESSPASS), as a means to digitally and timely prove and verify social security

rights for individuals exercising their right to free movement and facilitate

compliance for employers;

(b) on the functioning, evolution and improvement of the Electronic Exchange of

Social Security Information (EESSI) system which ensures secure,

standardised and interoperable data exchanges between social security

institutions;

(c) on other digital cross-border exchanges of data between competent institutions

necessary to combat cross-border social security fraud, as well as to detect

changes in circumstances, inaccuracies, inconsistencies or errors.

3. This Regulation complements Regulations (EC) No 883/2004 and (EC)

No 987/2009. It shall not affect the rights and obligations laid down in those

Regulations, save where otherwise provided in this Regulation.

Article 2

Scope

This Regulation shall apply to persons falling within the scope of Regulation (EC)

No 883/2004, as laid down in its Article 2, and to the branches of social security listed in

Article 3(1) of that Regulation.

Article 3

Definitions

1. For the purposes of this Regulation, the definitions set out in Regulations (EC)

No 883/2004 and (EC) No 987/2009 apply.

2. The following definitions also apply:

(a) ‘European Social Security Pass’ or ‘ESSPASS’ means the digital solution for

the request, issuance, cross-border verification and recognition of social

security documents within the Union;

(b) ‘social security document’ means any set of data (irrespective of its format),

attesting to a person’s social security position, which is required for the

implementation of Regulation (EC) No 883/2004 and Regulation (EC)

No 987/2009;

(c) ‘European Digital Identity Wallet’ means a European Digital Identity Wallet

defined in Article 3, point (42), of Regulation (EU) No 910/2014 of the

European Parliament and of the Council;

(d) ‘digital social security document’ means a social security document issued by

the competent institution of a Member State, which is designed to be stored,

EN 27 EN

managed and shared via the European Digital Identity Wallet and verifiable

electronically;

(e) ‘portable document A1’ means the social security document referred to in

Article 19(2) of Regulation (EC) No 987/2009, issued by the competent

institution of a Member State, attesting that its legislation applies under Title II

of Regulation (EC) No 883/2004;

(f) ‘European Health Insurance Card’ or ‘EHIC’ means the social security

document issued in accordance with Article 25 of Regulation (EC)

No 987/2009;

(g) ‘issuer’ means any institution as defined in Article 1, point (p), of Regulation

(EC) No 883/2004, or any body or authority designated, recognised or

otherwise competent under the law of a Member State, which is responsible for

issuing, transmitting and, where necessary, rectifying or withdrawing social

security documents within the scope of Regulations (EC) No 883/2004 and

(EC) No 987/2009;

(h) ‘verifier’ means any public or private entity, or natural person acting in a

professional capacity, that is designated, authorised or recognised by a Member

State as being entitled to verify social security documents in accordance with

this Regulation.

Chapter I

European Social Security Pass

Article 4

Legal framework for the ESSPASS

1. The legal framework for the ESSPASS consists of the rules laid down in this Chapter

with regard to the following:

(a) the online submission, by the persons concerned and the employers, of requests

for social security documents to competent institutions of the Member States;

(b) the issuing of social security documents by the Member States’ competent

institutions to the persons concerned and the employers;

(c) the electronic verification of social security documents by verifiers, to confirm

their authenticity, integrity and validity.

Article 5

Scope and application of the legal framework for the ESSPASS

1. This Chapter shall apply:

(a) from [date of entry into force plus 12 months] to the portable document A1;

EN 28 EN

(b) from [date of entry into force plus 3 years] to EHIC, and to other social

security documents except those identified in the delegated acts adopted

pursuant to paragraph 2.

2. By [date of entry into force plus 18 months], the Commission may adopt delegated

acts establishing, on the basis of an assessment, a list of social security documents,

other than the portable document A1 and EHIC, for which this Chapter would not

apply.

3. The assessment shall consider the following:

(c) the operational relevance of the documents concerned, having regard in

particular to their frequency of issuance, the number of documents issued and

potential for fraud prevention;

(d) the expected costs and benefits of digitalising the documents concerned for the

exercise of social security rights and the efficient implementation of

Regulations (EC) No 883/2004 and (EC) No 987/2009, including the

administrative burden reduction for individuals and businesses.

Article 6

Online request procedures for social security documents

Persons concerned and, where applicable, employers, shall be able to submit requests for

social security documents falling within the scope of this Regulation fully online using

procedures that comply with Regulation (EU) 2018/1724. The online request procedure shall

be user-friendly, accessible and comply with the following requirements:

(a) It shall enable the electronic identification and authentication of the person

concerned and, where applicable, the employer;

(b) It shall allow for the electronic provision of the information, documents or

supporting evidence, referred to in Article 3(2) of Regulation (EC) No 987/2009,

necessary to process the request;

(c) It shall ensure that the final submission of the request can be completed remotely;

(d) It shall provide the person concerned and, where applicable, the employer with an

automatic acknowledgement of receipt after the completed submission has been

completed, unless the document is issued immediately;

(e) It shall notify the person concerned and, where applicable, the employer,

electronically that the issuing procedure has been completed.

EN 29 EN

Article 7

Issuance, validity and verification of social security documents

1. The competent institutions shall issue digital social security documents in a format

suitable for use in the European Digital Identity Wallet of the person concerned and,

where relevant, of the employer. The digital social security documents shall comply

with the technical specifications adopted pursuant to paragraph 11.

2. By way of derogation from paragraph 1, at the request of the person concerned or the

employer, the competent institutions shall issue the social security document in a

standardised and accessible physical format. Such a document shall include a QR

code or other electronic features to enhance its security and shall comply with the

technical specifications adopted pursuant to paragraph 11.

3. Each Member State shall communicate to the Commission a list of issuers and shall

keep that list up to date. The Commission shall make those lists available to the

public through a secure channel and in an electronically signed or sealed form

suitable for automated processing. With regard to issuers of the portable document

A1, the list shall be communicated to the Commission by [date of entry into force

plus 12 months]. Member States shall communicate the list of issuers of EHIC and

other social security documents falling within the scope of this Chapter by [date of

entry into force plus 3 years].

4. Before issuing a social security document, the issuers shall verify the accuracy of the

information provided by the persons concerned and, where applicable, by the

employers in support of their request, including by means of digital tools.

5. Where a social security document referred to in paragraph 1 or paragraph 2 is

revoked, the issuer shall immediately notify the person concerned and, where

applicable, the employer. Notification shall be made by electronic means, except if

other means are indicated by both the person concerned and, where applicable, the

employer.

6. The issuers shall ensure that a person is able to receive and store, within their own

European Digital Identity Wallet, the digital social security documents of their minor

children and of a natural person whom they legally represent.

7. Social security documents issued under paragraphs 1 and 2 by one Member State

shall be recognised by verifiers in all Member States.

Where a document issued in accordance with this Regulation has been verified, its

validity or authenticity shall not be subject to further proof requirements in the host

Member State. This paragraph shall be without prejudice to the procedures

applicable in the event of doubt or dispute under Regulations (EC) No 883/2004 and

(EC) No 987/2009.

8. Member States shall ensure that verifiers established on their territory are equipped

with the necessary technical means to verify the social security documents issued

under this Article, regardless of the format, in order to confirm their authenticity,

integrity and validity. They shall be able to verify that:

(a) the document was issued by an authorised institution;

(b) the data contained in the document have not been tampered with since it was

issued;

EN 30 EN

(c) the document has not expired or been revoked.

9. Personal data processed for the purposes of verifying the concerned person’s social

security document shall not be retained by the verifier after the verification is

complete, unless it is necessary to apply Regulations (EC) No 883/2004 and (EC) No

987/2009, or authorised by other Union or national legal act in accordance with

Regulation (EU) 2016/679 or Directive (EU) 2016/68032.

10. ESSPASS shall be interoperable with the EESSI system and, where appropriate, with

other relevant Union digital initiatives, including the European Health Data Space

and the Once-Only Technical system.

11. The Commission shall adopt implementing acts specifying the functional and

technical specifications regarding the documents referred to in paragraphs 1 and 2.

Those implementing acts shall include:

(a) the technical and interoperability specifications, including common data

models establishing the data to be processed, standards and accessibility

requirements;

(b) the procedures for requesting, issuing, revoking and verifying documents,

including aspects related to the lists of issuers in accordance with paragraph 3

of this Article;

(c) the technical and organisational security measures, including encryption and

access control measures;

(d) the organisational measures for processing and protecting personal data,

including with regard to the retention periods, and the roles of controllers and

processors in accordance with Regulation (EU) 2016/679.

Those implementing acts shall be adopted in accordance with the examination procedure

referred to in Article 17(2).

Article 8

Deadlines for issuing social security documents

1. Competent institutions shall issue social security documents to the person concerned

and, where applicable, the employer in compliance with the deadlines established in

accordance with paragraphs 2 and 3.

2. By [date of entry into force plus 18 months], the Commission shall adopt

implementing acts specifying the deadlines for issuing social security documents

32 Directive (EU) 2016/680 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 by competent authorities for

the purposes of the prevention, investigation, detection or prosecution of criminal offences or the

execution of criminal penalties, and on the free movement of such data, and repealing Council

Framework Decision 2008/977/JHA (OJ L 119, 4.5.2016, p. 89,

ELI: http://data.europa.eu/eli/dir/2016/680/oj).

EN 31 EN

under the scope of this Chapter, calculated from the submission of a complete

request.

3. By way of derogation from paragraph 2, the implementing act specifying the

deadline for issuing the portable document A1 shall be adopted by [date of entry into

force plus 12 months].

4. For the issuance of the European Health Insurance Card, the maximum deadline shall

not exceed 24 hours.

5. When specifying the deadlines, the Commission shall take into account the

following:

(a) the type of social security document requested;

(b) the procedural steps required for verifying the information provided before

issuing the requested social security document, including where relevant the

necessary exchanges of information between competent institutions;

(c) the need to ensure the timely exercise of rights under Regulation (EC)

No 883/2004.

Those implementing acts shall be adopted in accordance with the examination

procedure referred to in Article 17(2).

6. Upon receipt of the request, the issuer shall inform the persons concerned or the

employers, as applicable, of the expected time required to process their request and

of the applicable deadlines laid down in the implementing acts adopted pursuant to

paragraph 2.

Article 9

European Health Insurance Cards

1. From [date of entry into force plus 3 years], all newly issued European Health

Insurance Cards shall comply with the requirements laid down in Article 7. European

Health Insurance Cards already in circulation which have not yet expired at that date

shall be replaced no later than [date of entry into force plus 5 years].

2. From [date of entry into force plus 3 years], Member States shall ensure that

healthcare providers on their territory are able to transmit electronically the data

contained in the European Health Insurance Card of a patient from another Member

State, and all the data that need to be transmitted for the reimbursement process, to

the competent institutions of the Member State of treatment.

Article 10

Portable document A1

1. By [date of entry into force plus 12 months], the Commission shall adopt

implementing acts establishing common information requirements for requesting the

EN 32 EN

portable document A1, not exceeding what is necessary to determine the applicable

legislation and with due regard to administrative burden reduction.

2. The Commission shall establish, by means of implementing acts, a common

technical framework to ensure interoperability between national portals used to

request the portable document A1 and the public interfaces connected to the Internal

Market Information System33 for the declaration of posting of workers and for the

posting of drivers in road transport, as provided for in Article 1(11) of Directive (EU)

2020/1057. That technical framework shall enable the reuse of relevant submitted

data across the procedures for the request of the portable document A1 and the

submission of posting declarations, in compliance with Regulations (EU) 2016/679

and (EU) 2018/1725 and the once-only principle.

3. The implementing acts referred to in paragraphs 1 and 2 shall be adopted in

accordance with the examination procedure referred to in Article 17(2).

Chapter II

Exchanges between institutions

Article 11

Exchanges through the EESSI system

1. Member States shall exchange, access and process the data required to apply

Regulations (EC) No 883/2004 and (EC) No 987/2009 via the EESSI system in

accordance with the functional and technical specifications as laid down pursuant to

Article 78 of Regulation (EC) No 987/2009.

2. When exchanging the data via the EESSI system, Member States shall comply with

the maximum time periods laid down in Annex I to this Regulation.

3. The Commission is empowered to adopt delegated acts in accordance with Article 16

in order to amend Annex I, taking into account the following:

(a) the business use cases and the structured electronic documents involved in the

exchange;

(b) the procedural steps required for gathering the information, including where

relevant the necessary exchanges of information between competent

institutions at the national level;

(c) the need to ensure the timely exercise of rights under Regulation (EC)

No 883/2004.

33 Regulation (EU) No 1024/2012 of the European Parliament and of the Council of 25 October 2012 on

administrative cooperation through the Internal Market Information System and repealing Commission

Decision 2008/49/EC (‘the IMI Regulation’) (OJ L 316, 14.11.2012, p. 1,

ELI: http://data.europa.eu/eli/reg/2012/1024/oj).

EN 33 EN

4. For the purposes of personal data processing within the EESSI system, the

Commission shall be considered a processor as defined in Article 3, point (12), of

Regulation (EU) 2018/1725 and Member States’ joint controllers as referred to in

Article 26 of Regulation (EU) 2016/679.

5. The Commission shall further specify, by way of implementing acts, the functional

and technical specifications of the EESSI system with regard to the following areas:

(a) the business use cases and the structure, format, content and data models of the

information exchanged;

(b) the procedural and technical rules for data exchanges;

(c) the roles and responsibilities of the bodies involved in the exchanges;

(d) business continuity measures;

(e) security and data protection measures;

(f) operational and support measures;

(g) the details of the public database containing the information specified in

Article 88(4) of Regulation (EC) No 987/2009;

(h) the service levels.

Those implementing acts shall be adopted in accordance with the examination

procedure referred to in Article 17(2).

Article 12

Electronic exchange of information

outside the EESSI system

1. By way of derogation from Article 11(1), where the exchange of data necessary for

controls on the correct application or enforcement of Regulations (EC) No 883/2004

and (EC) No 987/2009, including for the purposes of detecting changes in

circumstances, inaccuracies, inconsistencies, fraud and error, cannot be effectively

carried out through the EESSI system, such data, or secure access to such data may

be provided outside the EESSI system, in accordance with the common procedures

and specifications established pursuant to paragraph 2.

2. The Commission shall, where applicable, adopt implementing acts to establish

common procedures and functional and technical specifications for the secure

exchange of data or access to data referred to in paragraph 1.

3. The implementing acts may include the following:

(a) arrangements concerning the categories of data to be exchanged or made

accessible and the role and responsibility of the bodies involved in the

exchanges;

(b) the means of exchange or access;

(c) standard formats or structures;

(d) measures ensuring the security, integrity and reliability of the exchange or

access.

EN 34 EN

Those implementing acts shall be adopted in accordance with the examination

procedure referred to in Article 17(2).

Chapter III

Governance and data processing

Article 13

Digitalisation Group

1. A group on digitalisation in social security coordination (the ‘Digitalisation

Group’) is established to facilitate cross-border cooperation on the digital aspects of

the coordination of social security systems set out in this Regulation.

2. The Digitalisation Group shall be made up of two government representatives from

each of the Member States, assisted, where necessary, by expert advisers.

Representatives of the European Commission shall also attend the meetings of the

Digitalisation Group. The Group shall be chaired by the Commission, which shall

also provide its secretariat.

3. The Digitalisation Group shall have the following tasks:

(a) support the consistent implementation of this Regulation by facilitating

coordination, the exchange of information and the promotion of best practices

across Member States and developing guidelines to support enforcement of this

Regulation;

(b) provide recommendations to the committee referred to in Article 17, where

appropriate, on further digitalisation of the coordination of social security

systems;

(c) support the development and operation of electronic data exchanges in

accordance with this Regulation;

(d) advise the Commission, as appropriate, in the early preparations of draft

implementing acts to be adopted pursuant to this Regulation.

4. The Digitalisation Group shall cooperate, when relevant, with the Administrative

Commission for the coordination of social security systems referred to in Title IV of

Regulation (EC) No 883/2004 and with the European Digital Identity Cooperation

Group referred to in Article 46e of Regulation (EU) No 910/2014.

5. The Digitalisation Group shall adopt its rules of procedure.

Article 14

Monitoring and reporting

EN 35 EN

1. Member States shall collect the data necessary for monitoring the implementation of

Article 8(1) and Article 11(2) and shall transmit those data to the Commission

quarterly, by the end of the month following each calendar quarter. The Commission

shall publish statistics based on the data collected.

2. The Commission shall adopt implementing acts specifying the format and structure

of the reports referred to in paragraph 1. Those implementing acts shall be adopted in

accordance with the examination procedure referred to in Article 17(2).

Article 15

Protection and processing of personal data

1. Personal data required for the application of this Regulation shall be processed by

Member States’ issuers and verifiers for the purposes of issuing and verifying of

social security documents as defined by implementing acts adopted under the present

Regulation. In particular, personal data shall be processed under this Regulation for

the purposes of:

(a) issuing social security documents;

(b) determining social security rights of documents’ holders;

(c) verifying the validity of social security documents and information contained

therein.

2. Personal data to be processed pursuant to this Regulation shall be those contained in

the social security documents handled, for the purposes referred to in paragraph 1 by

Member States’ issuers and verifiers. Processing of personal data under this

Regulation shall be limited to the extent necessary for the purposes set out in

paragraph 1, without affecting further processing for archiving purposes in the public

interest in accordance with Article 5(1), point (b) and Article 89 of the Regulation

(EU) 2016/679.

3. For the purposes of this Regulation, Member States’ issuers of social security

documents under the ESSPASS framework shall be regarded as controllers within

the meaning of Article 4(7) of the Regulation (EU) 2016/679. Controllers shall

ensure the security, integrity, authenticity and confidentiality of the data processed

for the purposes set out in paragraph 1.

Chapter IV

Final provisions

Article 16

Exercise of the delegation

EN 36 EN

1. The power to adopt delegated acts is conferred on the Commission subject to the

conditions laid down in this Article.

2. The power to adopt delegated acts referred to in Articles 5(2) and 11(3) shall be

conferredon the Commission for an indeterminate period of time from [the date of

entry into force of this Regulation].

3. The delegation of power referred to in Articles 5(2) and 11(3) may be revoked at any

time by the European Parliament or by the Council. A decision to revoke shall put an

end to the delegation of the power specified in that decision. It shall take effect the

day following the publication of the decision in the Official Journal of the European

Union or at a later date specified therein. It shall not affect the validity of any

delegated acts already in force.

4. Before adopting a delegated act, the Commission shall consult experts designated by

each Member State in accordance with the principles laid down in the

Interinstitutional Agreement of 13 April 2016 on Better Law-Making.

5. As soon as it adopts a delegated act, the Commission shall notify it simultaneously to

the European Parliament and to the Council.

6. A delegated act adopted pursuant to Articles 5(2) and 11(3) shall enter into force

only if no objection has been expressed either by the European Parliament or by the

Council within a period of [two months] of notification of that act to the European

Parliament and the Council or if, before the expiry of that period, the European

Parliament and the Council have both informed the Commission that they will not

object.That period shall be extended by [two months] at the initiative of the

European Parliament or of the Council.

Article 17

Committee

1. The Commission shall be assisted by a committee within the meaning of Regulation

(EU) No 182/2011.

2. Where reference is made to this paragraph, Article 5 of Regulation (EU)

No 182/2011 shall apply.

Article 18

Evaluation

1. By [seven years after the date of entry into force], the Commission shall evaluate the

implementation and effectiveness of this Regulation.

2. The evaluation shall assess, in particular, whether the objectives of this Regulation

have been achieved and whether its provisions remain relevant, effective, efficient,

coherent and proportionate.

3. The Commission shall submit a report on the findings of the evaluation to the

European Parliament and the Council. The report shall be made publicly available.

EN 37 EN

Article 19

Amendments to Regulation (EC) No 883/2004

1. Regulation (EC) No883/2004 is amended as follows:

(1) in Article 72, point (d) is deleted;

(2) Article 73 is deleted.

2. Decisions of the Administrative Commission concerning digital aspects, adopted

under Article 72, point (d) of Regulation (EC) No 883/2004, shall continue to

serve as guidance until the implementing acts provided for in this Regulation enter

into force. The Technical Commission on social security coordination referred to in

Decision H15 shall continue to work until the adoption of the rules of procedure of

the Digitalisation Group pursuant to Article 13(5).

Article 20

Amendments to Regulation (EC) No 987/2009

Article 4 of Regulation (EC) No 987/2009 is amended as follows:

(1) paragraph 1 is deleted;

(2) in paragraph 3, the second sentence is deleted.

Article 21

Amendments to Regulation (EU) 2018/1724

Annex II to Regulation (EU) 2018/1724 is amended as follows:

In the table, the following row is inserted after the row 'Retiring':

Exercising social

security rights

Applications, requests and

notifications relating to the

exercise of social security rights

under Regulation [ESSPASS

Proposal].

Confirmation of applications,

requests and notifications relating to

the exercise of social security rights,

as well as all outputs pertaining to

the procedures under Regulation

[ESSPASS Proposal].

Article 22

Entry into force

This Regulation shall enter into force on the twentieth day following that of its publication in

the Official Journal of the European Union.

EN 38 EN

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

Done at Strasbourg,

For the European Parliament For the Council

The President The President

EN 1 EN

LEGISLATIVE FINANCIAL AND DIGITAL STATEMENT

1. FRAMEWORK OF THE PROPOSAL/INITIATIVE ................................................. 3

1.1. Title of the proposal/initiative ...................................................................................... 3

1.2. Policy area(s) concerned .............................................................................................. 3

1.3. Objective(s) .................................................................................................................. 3

1.3.1. General objective(s) ..................................................................................................... 3

1.3.2. Specific objective(s) ..................................................................................................... 3

1.3.3. Expected result(s) and impact ...................................................................................... 3

1.3.4. Indicators of performance ............................................................................................ 3

1.4. The proposal/initiative relates to: ................................................................................. 4

1.5. Grounds for the proposal/initiative .............................................................................. 4

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 ............................................................ 4

1.5.2. Added value of EU involvement (it may result from different factors, e.g.

coordination gains, legal certainty, greater effectiveness or complementarities). For

the purposes of this section ‘added value of EU involvement’ is the value resulting

from EU action, that is additional to the value that would have been otherwise

created by Member States alone. ................................................................................. 4

1.5.3. Lessons learned from similar experiences in the past .................................................. 4

1.5.4. Compatibility with the multiannual financial framework and possible synergies with

other appropriate instruments ....................................................................................... 5

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

redeployment ................................................................................................................ 5

1.6. Duration of the proposal/initiative and of its financial impact .................................... 6

1.7. Method(s) of budget implementation planned ............................................................. 6

2. MANAGEMENT MEASURES................................................................................... 8

2.1. Monitoring and reporting rules .................................................................................... 8

2.2. Management and control system(s) ............................................................................. 8

2.2.1. Justification of the budget implementation method(s), the funding implementation

mechanism(s), the payment modalities and the control strategy proposed .................. 8

2.2.2. Information concerning the risks identified and the internal control system(s) set up

to mitigate them............................................................................................................ 8

2.2.3. Estimation and justification of the cost-effectiveness of the controls (ratio between

the control costs and the value of the related funds managed), and assessment of the

expected levels of risk of error (at payment & at closure) ........................................... 8

2.3. Measures to prevent fraud and irregularities ................................................................ 9

3. ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE ............ 10

EN 2 EN

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

affected ....................................................................................................................... 10

3.2. Estimated financial impact of the proposal on appropriations ................................... 12

3.2.1. Summary of estimated impact on operational appropriations.................................... 12

3.2.1.1. Appropriations from voted budget ............................................................................. 12

3.2.1.2. Appropriations from external assigned revenues ....................................................... 17

3.2.2. Estimated output funded from operational appropriations......................................... 22

3.2.3. Summary of estimated impact on administrative appropriations ............................... 24

3.2.3.1. Appropriations from voted budget .............................................................................. 24

3.2.3.2. Appropriations from external assigned revenues ....................................................... 24

3.2.3.3. Total appropriations ................................................................................................... 24

3.2.4. Estimated requirements of human resources.............................................................. 25

3.2.4.1. Financed from voted budget....................................................................................... 25

3.2.4.2. Financed from external assigned revenues ................................................................ 26

3.2.4.3. Total requirements of human resources ..................................................................... 26

3.2.5. Overview of estimated impact on digital technology-related investments ................ 28

3.2.6. Compatibility with the current multiannual financial framework.............................. 28

3.2.7. Third-party contributions ........................................................................................... 28

3.3. Estimated impact on revenue ..................................................................................... 29

4. DIGITAL DIMENSIONS .......................................................................................... 29

4.1. Requirements of digital relevance .............................................................................. 30

4.2. Data ............................................................................................................................ 30

4.3. Digital solutions ......................................................................................................... 31

4.4. Interoperability assessment ........................................................................................ 31

4.5. Measures to support digital implementation .............................................................. 32

EN 3 EN

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 on

digitalising the coordination of social security systems, laying down a framework for

the European Social Security Pass (ESSPASS) and amending Regulations (EC)

No 883/2004, (EC) No 987/2009 and (EU) No 2018/1724

1.2. Policy area(s) concerned

People, society and social model, Free movement of persons, labour mobility

Access to services

Digitalisation of public administrations

1.3. Objective(s)

1.3.1. General objective(s)

The initiative aims to promote fair mobility within the EU, facilitating access to

social security rights for all individuals - in line with the European Pillar of Social

Rights and the single market strategy. It supports the Union’s cross-cutting

objectives of simplification and reduction of administrative hurdles through

digitalised cross-border public services.

1.3.2. Specific objective(s)

The specific objectives of the initiative are:

(1) Cross-border social security cases requiring the proof and verification of

social security rights and insurance status are handled with reduced manual

intervention and streamlined administrative steps, leading to faster and more

consistent processing.

(2) Cross-border interoperability is strengthened through converged documents’

formats, data models and verification methods across the EU, enabling

seamless exchange of information and reducing fraud.

(3) Individuals experience improved accessibility, awareness, and control over

their cross-border social security rights and data.

Individuals experience improved accessibility, awareness, and control over their cross-border

social security rights and data.

1.3.3. Expected result(s) and impact

The initiative is expected to reinforce the social security coordination framework, by

improving rules’ application and making their implementation simpler, more

efficient, and resistant to fraud.

It will increase the transparency and accessibility of rights for individuals, while

helping reduce fraudulent and exploitative practices. It is also anticipated to assist

businesses, making it easier for them to carry out activities across borders, and to

EN 4 EN

support national authorities by simplifying processes and enhancing cooperation. The

initiative will drive the digitalisation of cross-border public services, ultimately

contributing to a better competitiveness of the EU economy.

1.3.4. Indicators of performance

A comprehensive draft monitoring framework has been designed to monitor the

implementation and evaluate the initiative’s impact, ensuring that it remains fit for

purpose and achieve the intended objectives. This framework will undergo further

refinement based on the ultimate legal specifications and implementation schedule.

Indicators includes:

1) Percentage of procedures fully available online

2) Percentage of documents issued electronically

3) Percentage of compliant national authorities

4) Number of complaints by businesses and individuals on cases exceeding the

deadlines

5) Proportion of documents processed automatically across Member States

6) Reduction in processing time to issue and verify documents

7) Number of rejected healthcare reimbursement invoices

8) Reduction in the cases of falsified portable documents and inappropriate use of

EHIC

9) Percentage of users satisfied with the solution and awareness rating

10) Time of completion of users’ requests (reducing average time, reducing

difference between minimum and maximum time needed between Member

States)

11) Number of cross-border verifications completed successfully (transaction

volume, increasing)

12) Cybersecurity indices of data safety.

A comprehensive draft monitoring framework has been designed to monitor the

implementation and evaluate the initiative’s impact, ensuring that it remains fit for purpose

and achieve the intended objectives. This framework will undergo further refinement based on

the ultimate legal specifications and implementation schedule.

Indicators includes:

EN 5 EN

Percentage of procedures fully available online

Percentage of documents issued electronically

Percentage of compliant national authorities

Number of complaints by businesses and individuals on cases exceeding the deadlines

Proportion of documents processed automatically across Member States

Reduction in processing time to issue and verify documents

Number of rejected healthcare reimbursement invoices

Reduction in the cases of falsified portable documents and inappropriate use of EHIC

Percentage of users satisfied with the solution and awareness rating

Time of completion of users’ requests (reducing average time, reducing difference

between minimum and maximum time needed between Member States)

Number of cross-border verifications completed successfully (transaction volume,

increasing)

Cybersecurity indices of data safety.

1.4. The proposal/initiative relates to:

a new action

a new action following a pilot project / preparatory action34

the extension of an existing action

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

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

The main requirement for the short-term is to reach an agreement on the legislative

proposal by co-legislators by Q3 2027.

The proposal provides for the adoption of implementing acts.

1.5.2. Added value of EU involvement (it may result from different factors, e.g.

coordination gains, legal certainty, greater effectiveness or complementarities). For

the purposes of this section ’added value of EU involvement’ is the value resulting

from EU action, that is additional to the value that would have been otherwise

created by Member States alone.

Action at the EU level delivers significant added value by supporting the free

movement of people for study, travel, residency, family or business purposes. Given

the cross-border nature of the identified issues, only EU-level intervention rather

than individual Member State efforts can effectively solve these. An action at EU

level will ensure alignments with other EU digital initiatives, such as the Single

Digital Gateway Regulation and the European Digital Identity framework, ensuring

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

EN 6 EN

the necessary efficiency and. EU-level action prevents fragmentation that could arise

if Member States develop disparate digital solutions, leading to suboptimal outcomes

and potentially higher costs to remedy.

1.5.3. Lessons learned from similar experiences in the past

One of the key considerations in estimating the budgetary requirements for this

initiative has been the valuable lessons learned from past experiences, particularly

those derived from the implementation of the Electronic Exchange of Social Security

Information (EESSI) system. The financial projections take into account the

operational and technical support necessary for Member States’ national

implementation, ensuring that adequate resources are allocated. Additionally,

insights gained from the ESSPASS pilot activities have provided a clearer

understanding of the scope of effort and resource allocation.

1.5.4. Compatibility with the multiannual financial framework and possible synergies with

other appropriate instruments

The proposal is compatible with the multiannual financial framework.

It is part of the Fair labour mobility package, it supports the European pillar of social

rights and the Digital decade policy programme.

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

redeployment

The implementation of this legislative proposal requires the organisation of meetings

with Member States in the Group on digitalisation in social security coordination and

in the Committee supporting the adoption of implementing acts as well as human

resources to support Member States’ national implementation. The necessary

expenditure for organising these meetings, i.e. travel costs of delegates, and

providing this support is covered by the general budget.

EN 7 EN

1.6. Duration of the proposal/initiative and of its financial impact

limited duration

•  in effect from [DD/MM]YYYY to [DD/MM]YYYY

•  financial impact from YYYY to YYYY for commitment appropriations and

from YYYY to YYYY for payment appropriations.

unlimited duration

(1) Implementation with a start-up period from 2026 to 2030,

(2) followed by full-scale operation.

1.7. Method(s) of budget implementation planned

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 European Investment Bank 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 are provided with 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 are provided with adequate

financial guarantees

•  bodies or persons entrusted with the implementation of specific actions in the

common foreign and security policy pursuant to Title V of the Treaty on European

Union, and identified in the relevant basic act

• bodies established in a Member State, governed by the private law of a Member

State or Union law and eligible to be entrusted, in accordance with sector-specific

rules, with the implementation of Union funds or budgetary guarantees, to the extent

that such bodies are controlled by public law bodies or by bodies governed by private

law with a public service mission, and are provided with adequate financial

guarantees in the form of joint and several liability by the controlling bodies or

equivalent financial guarantees and which may be, for each action, limited to the

maximum amount of the Union support.

Comments

From 2028 onwards, a modest but ongoing financial requirement will arise. This will need to

be accounted for in the preparation of the post-2027 MFF (2028-2034), ensuring adequate

allocation for continued implementation support.

EN 8 EN

The estimated impact on expenditure and staffing for 2028 and beyond is added for

illustrative purposes only and does not pre-judge the next Multiannual Financial Framework.

The source of financing and scope of Union financial commitment in the post-2027 period

remain subject to the outcome of interinstitutional negotiations on the MFF 2028-2034 and

thereafter shall be determined through the annual budgetary procedure. All appropriations and

staffing allocations as of 2028 are indicative.

EN 9 EN

2. MANAGEMENT MEASURES

2.1. Monitoring and reporting rules

The proposed Regulation establishes a reporting obligation for Member States to

ensure transparency and accountability in the implementation of provisions related to

deadlines to issue social security documents and to exchange data through the

Electronic Exchange of Social Security system.

2.2. Management and control system(s)

2.2.1. Justification of the budget implementation method(s), the funding implementation

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

Direct management, as per Article 62.1(a) of the Financial Regulation, is the

preferred mode of implementation, as the actions will be carried out by the European

Commission, specifically Directorate-General for Employment, Social Affairs and

Inclusion (DG EMPL), which will ensure the coordination with Member States and

the various stakeholders.

2.2.2. Information concerning the risks identified and the internal control system(s) set up

to mitigate them

The controls are part of the internal control system of DG EMPL. The new activities

will be subject to the same risk identification and mitigation approach.

2.2.3. Estimation and justification of the cost-effectiveness of the controls (ratio between

the control costs and the value of the related funds managed), and assessment of the

expected levels of risk of error (at payment & at closure)

The controls are integrated into the internal control system of DG EMPL. The new

activities will generate negligeable additional control costs at DG level.

2.3. Measures to prevent fraud and irregularities

The Commission shall ensure that, when actions financed are implemented, the financial

interests of the Union are protected by the application of preventive measures against fraud,

corruption and any other illegal activities, by effective checks and by the recovery of the

amounts unduly paid and, if irregularities are detected, by effective, proportional and

dissuasive penalties. The Commission is authorised to carry out checks and verifications in

situ under this Decision, in compliance Council Regulation (Euratom, EC) No 2185/96 of

11 November 1996 concerning on-the-spot checks and inspections carried out by the

Commission in order to protect the European Communities financial interests against fraud

and other irregularities. If need be, investigations shall be carried out by the European Anti-

Fraud Office and shall be governed by Regulation (EC) No 1073/1999 of the European

Parliament and of the Council of 25 May 1999 concerning investigations conducted by the

European Anti-Fraud Office.

EN 10 EN

3. ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE

3.1. 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

Budget line Type of

expenditure Contribution

Number Headings 2

Non-

diff 35

.

from

EFTA

countries 36

from

candidate

countries

and

potential

candidates 37

From

other

third

countries

other assigned

revenue

2

Prerogatives - Free movement of workers,

coordination of social security schemes

and measures for migrants, including

migrants from third countries

diff. YES/NO YES/NO YES/NO NO

35 Diff. = Differentiated appropriations / Non-diff. = Non-differentiated appropriations. 36 EFTA: European Free Trade Association. 37 Candidate countries and, where applicable, potential candidates from the Western Balkans.

EN 11 EN

3.2. Estimated financial impact of the proposal on appropriations

3.2.1. Summary of estimated impact on operational appropriations

(3)  The proposal/initiative does not require the use of operational appropriations

(1)  The proposal requires the use of operational appropriations, as explained below

3.2.1.1. Appropriations from voted budget

EUR million (to three decimal places)

DG: EMPL Year Year Year Year Year Year Year

TOTAL MFF 2028-2034 2028 2029 2030 2031 2032 2033 2034

Operational appropriations

Budget line Prerogatives –

Free movement of workers,

coordination of social security schemes and measures

for migrants, including migrants from third countries

Commitments (1a) 0.750 0.750 0.750 0.750 0.750 0.750 0.750 5,25

Payments (2a) 0.750 0.750 0.750 0.750 0.750 0.750 0.750 5,25

Budget line Commitments (1b) 0

Payments (2b) 0

Appropriations of an administrative nature financed from the envelope of specific programmes38

Budget line (3) 0

TOTAL appropriations Commitments =1a+1b+3 0.750 0.750 0.750 0.750 0.750 0.750 0.750 5.25

for DG EMPL Payments =2a+2b+3 0.750 0.750 0.750 0.750 0.750 0.750 0.750 5.25

38 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.

EN 12 EN

Year Year Year Year Year Year Year TOTAL

MFF

2028-

2034 2028 2029 2030 2031 2032 2033 2034

TOTAL operational

appropriations

Commitments (4) 0.750 0.750 0.750 0.750 0.750 0.750 0.750 5,25

Payments (5) 0.750 0.750 0.750 0.750 0.750 0.750 0.750 5,25

TOTAL appropriations of an administrative nature financed from the envelope for

specific programmes (6) 0 0 0 0 0 0 0 0

TOTAL appropriations

under HEADING 2 Payments =4+6 0.750 0.750 0.750 0.750 0.750 0.750 0.750 5,25

of the multiannual

financial framework =5+6 0.750 0.750 0.750 0.750 0.250 0.250 0.250 5.25

==================================================================================================

Year Year Year Year Year Year Year TOTAL

MFF

2028-2034 2028 2029 2030 2031 2032 2033 2034

• TOTAL

operational

appropriations (all

operational

headings)

Commitments (4) 0 0 0 0 0 0 0 0

Payments (5) 0 0 0 0 0 0 0 0

• TOTAL appropriations of an

administrative nature financed from

the envelope for specific programmes

(all operational headings)

(6) 0 0 0 0 0 0 0 0

TOTAL

appropriations

Under

Heading 1 to 3

Commitments =4+6 0.750 0.750 0.750 0.750 0.750 0.750 0.750 5,25

EN 13 EN

of the multiannual

financial framework Payments =5+6 0.750 0.750 0.750 0.750 0.750 0.750 0.750 5,25

(Reference amount)

The estimated impact on expenditure and staffing for 2028 and beyond is added for illustrative purposes only and does not pre-judge the next

Multiannual Financial Framework. The source of financing and scope of Union financial commitment in the post-2027 period remain subject to

the outcome of interinstitutional negotiations on the MFF 2028-2034 and thereafter shall be determined through the annual budgetary procedure.

All appropriations and staffing allocations as of 2028 are indicative.

Heading of multiannual financial framework 2028

-2034 4 ‘Administrative expenditure’39

DG: EMPL Year Year Year Year Year Year Year TOTAL

MFF

2028-2034 2028 2029 2030 2031 2032 2033 2034

 Human resources 0,299 0,299 0,299 0,299 0,299 0,299 0,299 2,093

 Other administrative expenditure, Budget line 20.020602 0, 164 0, 164 0.164 0,164 0,164 0,164 0,164 1,148

TOTAL DG

EMPLAppropriations 0,463 0,463 0,463 0,463 0,463 0,463 0,463 3,241

DG: EMPL Year Year Year Year Year Year Year

TOTAL

MFF

2028-2034

 Other administrative expenditure 0 0 0 0 0 0 0 0

39 The necessary appropriations should be determined using the annual average cost figures available on the appropriate BUDGpedia webpage.

EN 14 EN

TOTAL appropriations under HEADING 4 of

the multiannual financial framework

(Total

commitments =

Total payments) 0,463 0,463 0,463 0,463 0,463 0,463 0,463 3,241

EUR million (to three decimal places)

Year Year Year Year Year Year Year TOTAL

MFF 2028-

2034 2028 2029 2030 2031 2032 2033 2034

TOTAL

appropriations under

HEADINGS 1 to 4

Commitments 1,213 1,213 1,213 1,213 1,213 1,213 1,213 8,491

of the multiannual

financial framework Payments 1,213 1,213 1,213 1,213 1,213 1,213 1,213 8,491

The estimated impact on expenditure and staffing for 2028 and beyond is added for illustrative purposes only and does not pre-judge the next

Multiannual Financial Framework. The source of financing and scope of Union financial commitment in the post-2027 period remain subject to

the outcome of interinstitutional negotiations on the MFF 2028-2034 and thereafter shall be determined through the annual budgetary procedure.

All appropriations and staffing allocations as of 2028 are indicative.

3.2.2. Estimated output funded from operational appropriations (not to be completed for decentralised agencies)

Indicate

objectives and

outputs

Year 2028

Year 2029

Year 2030

Year 2031

Enter as many years as necessary to show the

duration of the impact (see Section1.6) TOTAL

OUTPUTS

EN 15 EN

 Type 40

Aver

age

cost

N o

Cost N o

Cost N o

Cost N o

Cost N o

Cost N o

Cost N o

Cost Total

No

Total

cost

SPECIFIC OBJECTIVE No 1,2 and

3 41

…

- Output Consult

ant

1 0.750 1 0.750 1 0.750 1 0.750 1 0.750 1 0.750 1 0.750 7 5.25

- Output

- Output

Subtotal for specific objective No 1

SPECIFIC OBJECTIVE No 2 …

- Output

Subtotal for specific objective

TOTALS 7 5.25

40 Outputs are products and services to be supplied (e.g. number of student exchanges financed, number of km of roads built, etc.). 41 As described in Section 1.3.2. ‘Specific objective(s)’

EN 16 EN

3.2.3. Summary of estimated impact on administrative appropriations

(2)  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

3.2.3.3. Total appropriations

VOTED APPROPRIATIONS Year Year Year Year Year Year Year TOTAL

2028 -

2034 2028 2029 2030 2031 2032 2033 2034

HEADING 4

Human resources 0.299 0.299 0.299 0.299 0.2990.2990.299 2,093

Other administrative expenditure 0.164 0.164 0.164 0.164 0.1640.1640.164 1.148

Subtotal HEADING 4 0.463 0.463 0.463 0.463 0.463 0.463 0.463 3,241

Outside HEADING 4

Human resources 0.000 0.000 0.000 0.000 0.0000.0000.000 0,000

Other expenditure of an administrative

nature 0.000 0.000 0.000 0.000 0.0000.0000.000 0.000

Subtotal outside HEADING 4 0.000 0.000 0.000 0.000 0.000 0.000 0.000 0.000

TOTAL 0. 463 0. 463 0. 463 0. 463 0. 463 0. 463 0. 463 3,241

===================================================================

The estimated impact on expenditure and staffing for 2028 and beyond is added for illustrative

purposes only and does not pre-judge the next Multiannual Financial Framework. The source of

financing and scope of Union financial commitment in the post-2027 period remain subject to the

outcome of interinstitutional negotiations on the MFF 2028-2034 and thereafter shall be determined

through the annual budgetary procedure. All appropriations and staffing allocations as of 2028 are

indicative.

3.2.4. Estimated requirements of human resources

(1)  The proposal/initiative does not require the use of human resources

(2)  The proposal/initiative requires the use of human resources, as explained

below

3.2.4.1. Financed from voted budget

VOTED APPROPRIATIONS Year Year Year Year Year Year Year

2028 2029 2030 2031 2032 2033 2034

 Establishment plan posts (officials and temporary staff)

20 01 02 01 (Headquarters and

Commission’s Representation Offices)

1 1 1 1 1 1 1

EN 17 EN

20 01 02 03 (EU Delegations) 0 0 0 0 0 0 0

(Indirect research) 0 0 0 0 0 0 0

(Direct research) 0 0 0 0 0 0 0

Other budget lines (specify) 0 0 0 0 0 0 0

• External staff (in FTEs)

20 02 01 (AC, END from the ‘global envelope’)

1 1 1 1 1 1 1

20 02 03 (AC, AL, END and JPD in the EU Delegations)

0 0 0 0 0 0 0

Admin. Support line

• at

Headquarter s

0 0 0 0 0 0 0

[XX.01.YY.YY] • in EU

Delegations 0 0 0 0 0 0 0

(AC, END - Indirect research) 0 0 0 0 0 0 0

(AC, END - Direct research) 0 0 0 0 0 0 0

Other budget lines - Heading 4 0 0 0 0 0 0 0

Other budget lines - 07.200301 - Outside Heading 4

0 0 0 0 0 0 0

TOTAL 2 2 2 2 2 2 2

The human resources required will be met by staff from the DG who are already assigned to

management of the action and/or have been redeployed within the DG, together if necessary, with

any additional allocation which may be granted to the managing DG under the annual allocation

procedure and in the light of budgetary constraints.

The staff required to implement the proposal (in FTEs):

To be covered by

current staff

available in the

Commission

services

Exceptional additional staff*

To be financed

under Heading 7

or Research

To be financed

from BA line

To be financed

from fees

Establishment

plan posts

1 N/A N/A N/A

External staff

(CA, SNEs, INT)

1 N/A N/A N/A

Description of tasks to be carried out by:

EN 18 EN

Officials and temporary staff 1 AD will support the negotiation, prepare the implementing acts, organise meeting

with Member States.

External staff 1 external staff will support the official in charge

3.2.5. Overview of estimated impact on digital technology-related investments

There are no digital and IT costs under Heading 4.

TOTAL Digital

and IT

appropriations

Year Year Year Year Year Year Year TOTAL

MFF

2028 -

2034 2028 2029 2030 2031 2032 2033 2034

HEADING 4

IT expenditure (corporate)

0 0 0 0 0 0 0 0

Subtotal

HEADING 4 0 0 0 0 0 0 0 0

Outside HEADING 4

Policy IT expenditure on operational programmes

0 0 0 0 0 0 0 0

Subtotal outside

HEADING 4 0 0 0 0 0 0 0 0

TOTAL 0 0 0 0 0 0 0 0

3.2.6. Compatibility with the current multiannual financial framework

The proposal/initiative:

(9)  can be fully financed through redeployment within the relevant heading of the

multiannual financial framework (MFF)

.

The estimated impact on expenditure and staffing for 2028 and beyond is added for

illustrative purposes only and does not pre-judge the next Multiannual Financial

Framework. The source of financing and scope of Union financial commitment in the

post-2027 period remain subject to the outcome of interinstitutional negotiations on

the MFF 2028-2034 and thereafter shall be determined through the annual budgetary

procedure. All appropriations and staffing allocations as of 2028 are indicative.

(10)  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

(11)  requires a revision of the MFF

EN 19 EN

3.2.7. Third-party contributions

The proposal/initiative:

(12)  does not provide for co-financing by third parties

(13)  provides for the co-financing by third parties estimated below:

Appropriations in EUR million (to three decimal places)

Year Year Year Year Year Year Year

Total 2028 2029 2030 2031 2032 2033 2034

Specify the co-

financing body p.m. p.m. p.m. p.m p.m. p.m. p.m. p.m

TOTAL

appropriations

co-financed

3.3. Estimated impact on revenue

(14)  The proposal/initiative has no financial impact on revenue.

(15)  The proposal/initiative has the following financial impact:

 on own resources

 on other revenue

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

4. DIGITAL DIMENSIONS

4.1. Requirements of digital relevance

EN 1 EN

Reference to

the

requirement

Requirement description

Actors affected or

concerned by the

requirement

High-level

Processes Categories

R1

Article 6

Persons concerned and, where applicable,

employers, shall be able to submit requests for

social security documents falling within the scope

of this Regulation fully online using procedures

that comply with Regulation (EU) 2018/1724. The

online request procedure shall be user-friendly,

accessible and comply with the following

requirements:

(a) It shall enable the electronic identification

and authentication of the person

concerned and, where applicable, the

employer;

(b) It shall allow for the electronic provision

of the information, documents or

supporting evidence, referred to in Article

3(2) of Regulation (EC) No 987/2009,

necessary to process the request;

(c) It shall ensure that the final submission of

the request can be completed remotely;

(d) It shall provide the person concerned and,

where applicable, the employer with an

automatic acknowledgement of receipt

after the completed submission has been

• Issuers of social

security documents

• Holders of social

security documents

and applicants

Request social

security

documents

• Data

• Process digitalisation

and automation

• Digital public service(s)

EN 2 EN

completed, unless the document is issued

immediately;

(e) It shall notify the person concerned and,

where applicable, the employer,

electronically that the issuing procedure

has been completed.

R2

Article 7(1)

The competent institutions shall issue digital social

security documents in a format suitable for use in

the European Digital Identity wallet of the person

concerned, and where relevant, of the employer.

The digital social security documents shall comply

with the technical specifications adopted pursuant

to paragraph 11.

• Issuers of social

security documents

• Holders of social

security documents

and applicants

Issue digital

social security

documents

• Data

• Process digitalisation

and automation

• Digital solutions

• Digital public Service(s)

R3

Article 7(2)

By way of derogation from paragraph 1, the

competent institutions shall, at the request of the

person concerned or the employer, issue the social

security document in a standardised and accessible

physical format. Such a document shall include a

QR code or any other electronic features to

enhance its security, in accordance with the

technical specifications adopted pursuant to

paragraph 11.

• Issuers of social

security documents

• Holders of social

security documents

and applicants

Issue physical

documents

enhanced with

digital features

• Data

• Process digitalisation

and automation

• Digital solutions

• Digital Public Service(s)

R4

Article 7(3)

Each Member State shall communicate to the

Commission a list of issuers and shall keep that list

• Member States

Issue of social

security

• Data

• Process digitalisation

and automation

EN 3 EN

up to date. The Commission shall make those lists

available to the public through a secure channel

and in an electronically signed or sealed form

suitable for automated processing. With regard to

issuers of the portable document A1, the list shall

be communicated to the Commission by [date of

entry into force plus 12 months]. Member States

shall communicate the list of issuers of EHIC and

other social security documents falling within the

scope of this Chapter by [date of entry into force

plus 3 years].

documents • Digital solutions

• Digital Public Service(s)

R5

Article 7(4)

Before issuing a social security document, the

issuers shall verify the accuracy of the information

provided by the persons concerned and, where

applicable, by the employers in support of their

request, including by means of digital tools.

• Member States

Verify

information

before issuing

social security

documents

• Data

• Process digitalisation

and automation

• Digital solutions

R6

Article 7(5)

Where a social security document referred to in

paragraph 1 or 2 is revoked, the issuer shall

immediately notify the person concerned and,

where applicable, the employer, by electronic

means, except if other means are indicated by the

person concerned and, where applicable, the

employer.

• Issuer

• Holders of social

security documents

and applicants

Inform on

issuance and

revocation of

social security

documents

• Data

• Process digitalisation

and automation

• Digital solutions

• Digital Public Service(s)

R7

Article 7(6)

The issuers shall ensure that a person is able to

receive and store, within their own European • Member States Issue digital

social security

• Data

• Digital Public Service(s)

EN 4 EN

Digital Identity wallet, the digital social security

documents of their minor children and of a natural

person whom they legally represent.

documents of

legally

represented

persons

R8

Article 7(7)

Social security documents issued under paragraph

1 and 2 by one Member State shall be recognised

by verifiers in all other Member States.

• Member States

• Verifiers of social

security attestations

• Holders of social

security documents

Recognise social

security

documents

• Data

• Digital solutions

• Digital Public Service(s)

R9

Article 7(8)

Member States shall ensure that verifiers

established on their territory are equipped with the

necessary technical means to verify the social

security documents issued under this Article, in

order to confirm their authenticity, integrity and

validity. Verifiers shall be able to verify that:

(a) the document was issued by an authorised

institution;

(b) the data contained in the document has not

been tampered with since issuance;

(c) the document has not expired or been

revoked.

• Member States

• Verifiers

• Holders of social

security documents

Verify social

security

documents

• Data

• Process digitalisation

and automation

• Digital solutions

• Digital Public Service(s)

R10

Article 9(2)

From [date of entry into force plus 3 years],

Member States shall ensure that healthcare

providers on their territory are able to

electronically transmit the data contained in the

European Health Insurance Card of a patient from

another Member State, and all the data that need to

• Member States

• Healthcare

providers

• Insured persons

receiving treatment

Transmit data

for the

reimbursement

of costs under

the EU social

security

coordination

• Data

• Process digitalisation

and automation

• Digital solutions

• Digital Public Service(s)

EN 5 EN

be transmitted for the reimbursement process, to

the competent institutions of the Member State of

treatment.

rules

R11

Article 8

Competent institutions shall issue social security

documents to the person concerned and, where

applicable, the employer in compliance with the

deadlines established in accordance with paragraph

2.

• Issuers of social

security documents

• Holders of social

security documents

and applicants

Issue social

security

documents • Digital Public Service(s)

R12

Article 10(2)

The Commission shall establish, by means of

implementing acts, a common technical framework

to ensure interoperability between national portals

used to request the portable document A1 and the

public interfaces connected to the Internal Market

Information System for the declaration of posting

of workers and for the posting of drivers in road

transport, as provided for in Article 1(11) of

Directive (EU) 2020/1057. That technical

framework shall enable the reuse of relevant

submitted data across the procedures for the

request of the portable document A1 and the

submission of posting declarations, in compliance

with Regulations (EU) 2016/679 and (EU)

2018/1725 and the once-only principle.

• Commission

• Member States

• Portable document

A1 applicants

Requests for

portable

document A1

• Data

• Digital solutions

• Digital Public Service(s)

R14

Article 14(1)

Member States shall collect and transmit to the

Commission data on the implementation of

• Member States

• Commission Report • Data

EN 6 EN

Article 8(1) and Article 11(2).

R15 – Article

11(1)-(2)

Member States shall exchange, access and process

the data required to apply Regulations (EC) No

883/2004 and (EC) No 987/2009 via the Electronic

Exchange of Social Security Information (EESSI)

system, in accordance with its functional and

technical specifications laid down pursuant to

Article 78 of Regulation (EC) No 987/2009. When

exchanging data via the EESSI system, Member

States shall comply with the maximum time

periods laid down in Annex I of this Regulation.

Member States

Cross-border

information

exchange

Data

Process digitalisation and

automation

Digital Public Service

R16 - Article

7(10)

Interoperability of ESSPASS with EESSI and

other initiatives Interoperability Digital Public Services

4.2. Data

High-level description of the data in scope

Type of data Reference to the

requirement(s)

Standard and/or specification (if applicable)

EN 7 EN

Personal and non-personal data contained in

the digital social security documents

R2

R7

R8

R9

R10

As provided for in Article 7(11), data specifications for digital

social security documents will be defined through implementing

acts, in accordance with the examination procedure referred to in

Article 5 of Regulation (EU) No 182/2011. These specifications

will comply with the common standards, schemas, formats and

technical specifications established under the European Digital

Identity (EUDI) framework. They will also draw upon the work

undertaken during the ESSPASS pilot projects and the

recommendations of the Ad hoc group of the Administrative

Commission on ESSPASS.

Personal and non-personal data contained in

the physical social security documents

enhanced with digital features

R3

R8

R9

R10

As provided for in Article 7(11), data specifications for the

enhanced physical social security documents will be defined

through implementing acts, in accordance with the examination

procedure referred to in Article 5 of Regulation (EU)

No 182/2011. These specifications will also draw upon the work

undertaken during the ESSPASS pilot projects and the

recommendations of the Ad hoc group of the Administrative

Commission on ESSPASS.

Personal Identification Data (PID) attributes

held in the EUDI wallet

R2

R7

R8

R9

R10

The disclosure of PID attributes to the verifier will be performed

through EUDI wallet presentation protocols defined under the

EUDI framework.

Personal identification data or identifier and

other data required to request social security

R1 The identification and authentication in national portals and the

exchange of information for requesting social security documents

EN 8 EN

documents online R5 will follow the specifications and protocols used in the Member

States.

Data about issuers of social security

documents

R4 Issuers registration in the trust lists will follow the specifications

and protocols defined under the EUDI framework

Data regarding the implementation

of Article 8(1) and Article 11(2)

R13 The format and structure for the reporting obligation will be

defined through implementing acts, in accordance with the

examination procedure referred to in Article 11(2) of Regulation

(EU) No 182/2011.

Data required to apply Regulations (EC) No

883/2004 and (EC) No 987/2009, exchanged

between competent institutions – personal and

non-personal data

R15 Exchanges take place via the EESSI system in accordance with its

functional and technical specifications laid down pursuant to

Article 78 of Regulation (EC) No 987/2009.

Alignment with the European Data Strategy

The requirements are consistent with the objectives of the European data strategy. They facilitate secure access and interoperable exchange of

standardised data among relevant stakeholders across borders.

The requirements comply with the rights to privacy and data protection guaranteed in the Charter of Fundamental Rights of the European Union,

the Treaty on the Functioning of the European Union, the General Data Protection Regulation and the EU Data Protection Regulation.

No open data is processed under these requirements. The reporting obligation set out in Article 14 generates data exclusively for monitoring purposes,

without mandating the reuse of the reported information.

Alignment with the once-only principle

The requirements adhere to the once-only principle: social security documents, regardless of format, are issued once by national authorities, enabling

individuals and businesses to securely reuse them digitally without resubmitting the same data. These documents are verified cross-border after consent

is obtained.

EN 9 EN

Article 10(2) and (3) aim to implement the once-only principle to reduce administrative burdens and eliminate redundant data submissions when

requesting portable document A1.

High-level description of the data flows

Type of data Reference(s) to the

requirement(s)

Actors who

provide the data

Actors who

receive the data

Trigger for the data

exchange

Frequency (if

applicable)

Personal and non-personal data

contained in the digital social

security documents

R2

R7

Issuers Holders of

documents and

applicants

Issuance of digital

social security

documents

Personal and non-personal data

contained in the physical social

security documents enhanced

with digital features

R3 Issuers Holders of

documents and

applicants

Issuance of physical

social security

documents enhanced

with digital features

Personal Identification Data

(PID) attributes held in the

EUDI wallet

R9 Holders of

documents

Verifiers Request from the

verifiers and explicit

authorisation from the

holders

Personal and non-personal data

contained in the digital social

security documents

R9 Holders of

documents

Verifiers Request from the

verifiers and explicit

authorisation from the

holders

Personal and non-personal data

contained in the physical social

security documents enhanced

with digital features

R9 Holders of

documents

Verifiers Request from the

verifiers and holders’

presentation of the

physical documents

EN 10 EN

Personal identification data or

identifier and other data

required to request social

security documents online

R1 Applicants National portals

for requesting

social security

documents

Application for the

issuance of social

security documents

Data about issuers of social

security documents

R4 Issuers Commission Communication to

the Commission of

the trust lists of

issuers, any

subsequent update

Personal Identification Data

(PID) attributes held in the

EUDI wallet

R10 Verifiers of EHIC Authorities in

the Member

States of

treatment

Transfer of data for

reimbursement

processing

Personal and non-personal data

contained in the digital social

security documents

R10 Verifiers of EHIC Authorities in

the Member

States of

treatment

Transfer of data for

reimbursement

processing

Personal and non-personal data

contained in the physical social

security documents enhanced

with digital features

R10 Verifiers of EHIC Authorities in

the Member

States of

treatment

Transfer of data for

reimbursement

processing

Data regarding the

implementation of Article 8(1)

and Article 11(2)

R13 Member States Commission Reporting obligation

Data required to apply

Regulations (EC) No 883/2004 R15 Member States Member States

Need basis and within

the maximum time N/A

EN 11 EN

and (EC) No 987/2009 periods laid down in

Annex I

4.3. Digital solutions

High-level description of digital solutions

Digital solution

Reference(s)

to the

requirement(s)

Main mandated

functionalities

Responsible

body

How is accessibility

catered for?

How is reusability

considered?

Use of AI

technologies

(if applicable)

ESSPASS

issuing

infrastructure

R2

R3

Issuance,

management and

revocation of

digital social

security

documents and

physical social

security

documents

enhanced with

digital features

Member State

competent

authorities

For the digital social

security documents,

accessibility is addressed

through the Member

States’ implementation of

the EUDI wallets

(Article 5a(21) of

Regulation (EU)No

910/2014). For physical

documents, accessibility

requirements will be

defined in the technical

specifications to be

adopted through

implementing act, in

accordance with

For the digital social

security documents,

the solution is based

on the EUDI

framework and reuses

its core components,

such as the EUDI

trust framework, the

EUDI wallet, the PID

issuance

infrastructure, trust

registries and lists,

interoperability

specifications.

The EUDI trust

N/A

EN 12 EN

Article 7(11).

framework is also

being considered for

reuse in relation to

physical social

security documents.

ESSPASS

verifier

application/s

R8

R9

Verification of

digital social

security

documents and

physical social

security

documents

enhanced with

digital features

Member State

competent

authorities

The accessibility

requirements of the

verifiers’ application/s

interacting will be defined

through implementing

acts, in accordance with

Article 7(11).

As one of the

implementation

options, the

Commission may

provide a reference

implementation of the

application for reuse

and configuration by

Member States on a

voluntary basis. This

will be discussed with

Member States prior

to the implementation

phase. Details of the

verification

application will be

defined through

implementing acts, in

accordance with

Article 7(11).

As investments and

adaptations for

healthcare digital

systems are already

EN 13 EN

provided for under

the European health

data space, these

should be leveraged

to create synergies

that maximise their

impact and efficiency.

Online portals

for requesting

social security

documents

R1 Request of social

security

documents

Member State

competent

authorities

Responsibility for ensuring

the accessibility of

national portals rests with

the Member States.

Article 6(1) provides that

online request procedure

shall be accessible

Depending on a

Member State’s

digital landscape and

organisational

structure, existing

portals could be

updated to include

online requests for

additional social

security documents.

Alignment of the digital solution with applicable digital policies and legislative enactments

ESSPASS issuing infrastructure

Digital and/or sectorial policy (when these are

applicable)

Explanation on how it aligns

AI Act No use of AI is foreseen in the proposed Regulation.

EU Cybersecurity framework All security aspects of the issuing infrastructure, including the security

requirements for issuers of digital social security documents, the EUDI wallet

EN 14 EN

security features and the communication protocols between issuer and wallet, are

covered by the EUDI framework Regulation. The same security requirements for

the issuance of digital social security documents will also apply to the physical

documents enhanced with digital security features. They will be further detailed in

the technical specifications.

eIDAS The solution is based on the EUDI framework and reuses its core components. The

EUDI trust framework is also being considered for reuse in relation to physical

social security documents. These documents will include eIDAS-compliant

electronic signatures, providing the same level of assurance as digital social

security documents.

Single Digital Gateway and IMI The solution is built on the foundations established by the Single Digital Gateway

Regulation (SDGR), which mandates that Member States enable fully online access

to administrative procedures, such as A1 portable document requests, EHIC

applications, and pension claims, while ensuring the electronic issuance of outputs.

The solution standardises the format of these outputs to facilitate cross-border

verification and further extends digitalisation to all social security documents

within the scope of the proposed Regulation.

Others

Verifier application

Digital and/or sectorial policy (when these are

applicable)

Explanation on how it aligns

AI Act No use of AI is foreseen in the proposed Regulation.

EN 15 EN

EU Cybersecurity framework All security aspects of the verifier application, including the verification protocols,

will be compliant with the cybersecurity requirements defined under the EUDI

framework. They will be further detailed in the technical specifications.

eIDAS The verification of digital social security documents will comply with EUDI

protocols and standards, which are defined to support the implementation of eIDAS.

The physical documents enhanced with digital features will include eIDAS-

compliant electronic signatures, verifiable via the same verifier application.

Single Digital Gateway and IMI Interoperability with IMI.

Others

Portals to request ESSPASS attestations

Digital and/or sectorial policy (when these are

applicable)

Explanation on how it aligns

AI Act No use of AI is foreseen in the proposed Regulation.

EU Cybersecurity framework The proposed Regulation does not impose any additional cybersecurity

requirements.

eIDAS Portals should support login based on the Personal Information Data (PID)

presentation from the EUDI wallet.

Single Digital Gateway and IMI The Your Europe portal will serve as a possible single-entry point for applicants to

request the social security documents covered under the Single Digital Gateway

Regulation, redirecting them to the national portals for document requests.

Article 10 of the proposed Regulation (R13) address interoperability between

EN 16 EN

national portals for requesting the portable document A1 and the public interfaces

connected to the Internal Market Information System for the declaration of posting

of workers, currently under negotiations, and for the posting of drivers in road

transport.

Others

4.4. Interoperability assessment

High-level description of the digital public service(s) affected by the requirements

Digital public

service or category

of digital public

services

Description Reference(s) to the

requirement(s)

Interoperable

Europe Solution(s)

(NOT

APPLICABLE)

Other interoperability solution(s)

ESSPASS –

Request, issuance

and revocation of

social security

documents

This service, provided by

competent authorities in Member

States, enables applicants to

request and receive social security

documents either in a digital

format for use in the EUDI wallet

or as a physical document

enhanced by digital features.

R2

R3

R7

R13

// EUDI framework and wallet

ESSPASS -

Verification of social

This service, provided by

verifiers, enables holders of social

security documents to have their

R8

R9

EUDI framework and wallet

EN 17 EN

security documents documents instantly verified and

validated through digital means

(i.e. the verifier application).

For digital social security

documents, the service also allows

holders to confirm whether the

verifier is authorised to request

and verify the document.

Impact of the requirement(s) as per digital public service on cross-border interoperability

Request, issuance and revocation of social security documents

Assessment Measure(s) Potential remaining barriers (if applicable)

Alignment with existing digital and

sectorial policies

Please list the applicable digital and

sectorial policies identified

- Adoption of technologies and standards

set out under the EUDI Regulation

- Use of digital signatures in compliance

with the eIDAS Regulation (for physical

social security documents enhanced with

digital features)

- Compliance with GDPR

- Synergies with processes related to

EESSI (R 15)

Organisational measures for a

smooth cross-border digital public

services delivery

- Establishment of a modern and efficient

governance structure, comprising a

Committee under Regulation (EU)

No 182/2011 to support the Commission

EN 18 EN

Please list the governance measures

foreseen

in adopting implementing acts and an

Advisory Group on Digitalisation in

Social Security Coordination to provide

technical advice, operational support and

a community of practice for exchanging

experiences and knowledge.

- Registration of trusted issuers within the

trust framework and notification of the

corresponding trust lists to the

Commission.

- Mutual recognition of social security

documents

Measures taken to ensure a shared

understanding of the data

Please list such measures

- Shared specifications adopted through

implementing acts, in accordance with

the examination procedure referred to in

Article 5 of Regulation (EU)

No 182/2011.

- Advisory Group providing expertise to

the Commission in the early preparation

of implementing acts before submitting to

the Committee.

Use of commonly agreed open

technical specifications and

standards

Please list such measures

- Adoption of technical specifications for

digital social security documents as

provided for in Article 7(1)

- Adoption of technical specifications for

physical social security documents

enhanced with digital features as

provided for in Article 7(2)

Potentially high impact for authorities with lower

levels of technological maturity

Verification of social security documents

EN 19 EN

Assessment Measure(s) Potential remaining barriers (if applicable)

Alignment with existing digital and

sectorial policies

Please list the applicable digital and

sectorial policies identified

- Adoption of technologies and standards

set out under the EUDI Regulation

- Use of digital signatures in compliance

with the eIDAS Regulation (for physical

social security documents enhanced with

digital features)

- Synergies with e-Health initiatives using

the EUDI wallets

Organisational measures for a

smooth cross-border digital public

services delivery

Please list the governance measures

foreseen

- Establishment of a modern and efficient

governance structure, comprising a

Committee under Regulation (EU)

No 182/2011 to support the Commission

in adopting implementing acts and an

Advisory Group on Digitalisation in

Social Security Coordination to provide

technical advice, operational support and

a community of practice for exchanging

experiences and knowledge.

- Registration of authorised verifiers in

accordance with the EUDI trust

framework.

Measures taken to ensure a shared

understanding of the data

Please list such measures

- Shared specifications adopted through

implementing acts, in accordance with

the examination procedure referred to in

Article 5of Regulation (EU)

No 182/2011.

- Advisory Group providing expertise to

the Commission in the early preparation

of implementing acts before submitting to

EN 20 EN

the Committee.

Use of commonly agreed open

technical specifications and

standards

Please list such measures

- Adoption of technical specifications for

verification of social security documents,

regardless of format, as provided for in

Article 7(11)

4.5. Measures to support digital implementation

High-level description of measures supporting digital implementation

Description of the measure

Reference(s) to the

requirement(s)

Commission

role

(if applicable)

Actors to be

involved

(if42 applicable)

Expected timeline

(if applicable)

Adoption of implementing acts on the

functional, operational and technical

specifications, as provided for in

Article 7(1) (2) (11).

R2

R3

R7

R8

R9

Preparing and

adopting the

implementing

acts

Commission,

Committee

composed of

representatives

of Member

States

42

ET ET

EUROOPA KOMISJON

Strasbourg, 15.9.2026 COM(2026) 980 final

2026/0271 (COD)

Ettepanek:

EUROOPA PARLAMENDI JA NÕUKOGU MÄÄRUS,

milles käsitletakse sotsiaalkindlustussüsteemide koordineerimise digiüleminekut ja

millega kehtestatakse Euroopa sotsiaalkindlustuspassi (ESSPASS) raamistik ning

muudetakse määrusi (EÜ) nr 883/2004, (EÜ) nr 987/2009 ja (EL) 2018/1724

{SEC(2026) 980 final} - {SWD(2026) 981 final} - {SWD(2026) 982 final} -

{SWD(2026) 983 final}

(EMPs kohaldatav tekst)

ET 1 ET

SELETUSKIRI

1. ETTEPANEKU TAUST

• Ettepaneku põhjused ja eesmärgid

Isikute vaba liikumine on üks neljast ELi ühtse turu keskmes olevast põhivabadusest ja

Euroopa integratsiooni oluline saavutus. Hõlbustades töötajate liikuvust, aitab see

vähendada tööjõupuudust ja oskuste nappust ning toetab majanduskasvu ja konkurentsivõimet

kõigis liikmesriikides. Lisaks sellele, et isikute vaba liikumine toob kasu Euroopa

majandusele, laiendab see üksikisikute kutsealaseid ja isiklikke võimalusi, soodustab

kultuurivahetust ja ühist kogukonnatunnet, edendades seeläbi Euroopa Liidu integratsiooni.

Selle vabaduse tulemuslikuks kasutamiseks on vaja selgeid eeskirju, tugevaid

jõustamismehhanisme ja liikmesriikide vahel kooskõlastatud poliitikat, et toetada liikuvust,

tagades samal ajal õigluse, õiguskindluse ja õiguste kaitse. Sellega seoses on peamine

tugisammas ELi sotsiaalkindlustuse koordineerimise raamistik1. Sellega tagatakse, et

üksikisikud saavad jätkuvalt hüvitisi, nagu pension, töötus- ja perehüvitised, ning et neil

on teistesse liikmesriikidesse kolimise või seal viibimise või reisimise korral

tervisekindlustus. Euroopa Parlament ja nõukogu jõudsid hiljuti esialgsele kokkuleppele

selle raamistiku ajakohastamises2. Kui läbivaadatud raamistik on vastu võetud, hõlbustatakse

sellega kodanike õiguste kasutamist, tagatakse suurem õigusselgus ja nõuete täitmise tagamise

lihtsus ning lihtsustatakse ettevõtjate ja töötajate jaoks lühiajalist piiriülest tegevust ja ärireise.

Samal ajal on endiselt olemas suur potentsiaal muuta ELi sotsiaalkindlustuse koordineerimist

käsitlevate eeskirjade kohaldamine lihtsamaks. Seda on võimalik saavutada digitehnoloogia

ulatuslikuma ja parema kasutamisega selles valdkonnas osana ELi laiematest

jõupingutustest, mille eesmärk on i) lihtsustada menetlusi; ii) vähendada üksikisikute,

ettevõtjate ning riiklike, piirkondlike ja kohalike ametiasutuste koormust ning iii) toetada ELi

ühtse turu konkurentsivõimet.

Digiüleminek on ELi strateegiliste prioriteetide keskne osa ning innovatsiooni ja

konkurentsivõime peamine liikumapanev jõud. Kooskõlas digikümnendi

poliitikaprogrammiga 2030 ning Euroopa deklaratsiooniga digiõiguste ja -põhimõtete kohta

edendab liit sujuvate ja inimkesksete digitaalsete avalike teenuste arendamist kogu Euroopas.

Enrico Letta ja Mario Draghi hiljutistes aruannetes ühtse turu tuleviku ja Euroopa

konkurentsivõime kohta rõhutatakse tungivat vajadust seda digiüleminekut kiirendada ja

kõrvaldada tõkked, mis kahjustavad ühtse turu dünaamilisust. Samamoodi on ka 2026. aasta

ühtse turu ja konkurentsivõime aruandes tuvastatud oluliste takistustena püsivad lüngad

piiriüleste digiteenuste valdkonnas ja liikuvusega seotud probleemid – eriti väikeste ja

1 Määrus (EÜ) nr 883/2004 sotsiaalkindlustussüsteemide koordineerimise kohta ja määrus (EÜ) nr

987/2009, milles sätestatakse määruse (EÜ) nr 883/2004 rakendamise kord. Neid määrusi kohaldatakse

ka Norra, Islandi, Liechtensteini ja Šveitsi suhtes. Ühendkuningriigiga sõlmitud lepingutes on

kehtestatud erieeskirjad. 2 Euroopa Parlament kiitis esialgse kokkuleppe heaks 7. juulil 2026, kuid nõukogu ei ole seda veel

ametlikult vastu võtnud.

ET 2 ET

keskmise suurusega ettevõtjate (VKE) jaoks3 –, mis takistavad Euroopa majanduskasvu ja

digitaalse ühtse turu sujuvat toimimist. Lisaks rõhutatakse ELi 2025. aasta idu- ja

kasvufirmade strateegias õigusliku killustatuse negatiivset mõju idu- ja kasvufirmade

suutlikkusele ühtsel turul tõhusalt tegutseda ja talente ligi meelitada.

Kuigi komisjon ja liikmesriigid on juba astunud praeguse raamistiku alusel samme piiriüleste

menetluste, teenuste ja andmevahetuse digitaliseerimiseks sotsiaalkindlustuse koordineerimise

valdkonnas, on vaja ELi tasandil täiendavaid meetmeid. See on kooskõlas Euroopa

Parlamendi korduvate üleskutsetega, sealhulgas 2021. aasta resolutsioonis Euroopa

sotsiaalkindlustuspassi kohta, mida kajastati komisjoni teatises sotsiaalkindlustuse

koordineerimise digiülemineku kohta, nõukogu 2023. aasta novembri järeldustes ja eespool

nimetatud Letta aruandes. Samuti vastab see Euroopa sotsiaalpartnerite4 ja

kodanikuühiskonna organisatsioonide taotlustele tugevdada töötajate sotsiaalkindlustusõiguste

kaitset, tõhustada jõustamist ja hõlbustada töötajate liikuvust, vähendades samal ajal

halduskoormust.

Sotsiaalkindlustusteabe elektroonilise vahetamise (EESSI) süsteem5 on märkimisväärselt

parandanud juhtumite käsitlemist ELi sotsiaalkindlustuse koordineerimist käsitlevate

eeskirjade kohaselt. EESSI, mis hõlmab selliseid valdkondi nagu haigused, tööõnnetused,

pensionid, töötus- ja perehüvitised, võimaldab 32 osalevas riigis (27 liikmesriiki ning Island,

Liechtenstein, Norra, Šveits ja Ühendkuningriik) rohkem kui 3 100 sotsiaalkindlustusasutusel

vahetada teavet elektrooniliselt ja turvaliselt, asendades paberkandjal teabevahetuse. Alates

selle rakendamisest on menetletud rohkem kui 42 miljonit juhtumit, mis on toonud

käegakatsutavat kasu miljonitele inimestele, kelle sotsiaalkindlustusnõudeid menetletakse

nüüd tõhusamalt.

Vaatamata nendele edusammudele on endiselt mõningaid takistusi süsteemi eeliste täielikul

ärakasutamisel. Need hõlmavad viivitusi piiriüleste pensionijuhtumite käsitlemisel, mille tõttu

on oht, et üksikisikud jäävad ilma õigeaegsest juurdepääsust oma õigustele, mis õõnestab

inimeste usaldust ELi sotsiaalkindlustuse koordineerimise raamistiku vastu. EESSI

rakendamisel saadud kogemused on toonud esile ka piiriüleste sotsiaalkindlustusmenetluste

digitaliseerimisega seotud tehnilised, menetluslikud ja koordineerimisprobleemid. Kuna

kaasatud on tuhanded institutsioonid ja hõlmatud on kõik sotsiaalkindlustusliigid, on vaja

paindlikumat koostööd ja sujuvamat otsustusprotsessi.

Kuigi sotsiaalkindlustusasutuste vahelise teabevahetuse parandamine EESSI kaudu on

äärmiselt oluline, on see alles esimene samm. Vaja on täiendavat digitaliseerimist, et

3 Vt ühtse turu normide täitmise tagamise rakkerühma 2024. aasta aruanne:

https://ec.europa.eu/internal_market/smet/_docs/2024/smet-report-2024_en.pdf, lk 12. 4 BusinessEurope’i seisukohavõtt: „Stepping up EU simplification efforts in the field of social affairs“

(ELi lihtsustamispüüdluste tõhustamine sotsiaalküsimuste valdkonnas), Euroopa Ametiühingute

Keskliidu panus avalikku konsultatsiooni. 5 EESSI projekt käivitati 2008. aastal ja süsteem võeti kasutusele 2019. aastal. Lisateabe saamiseks vt

„Electronic Exchange of Social Security Information (EESSI) - Employment, Social Affairs and

Inclusion“ (Sotsiaalkindlustusteabe elektrooniline vahetamine (EESSI) – tööhõive, sotsiaalküsimused ja

kaasatus).

ET 3 ET

• tugevdada üksikisikute ja töötajate kaitset, hõlbustades tulemuslikumat juurdepääsu

sotsiaalkindlustusõigustele kogu Euroopas;

• vähendada haldustakistusi ja kulusid üksikisikute jaoks, kes saavad juurdepääsu

sotsiaalkindlustushüvitistele teistes liikmesriikides, ja piiriüleselt tegutsevate

ettevõtjate jaoks;

• parandada piiriüleste avalike teenuste kvaliteeti;

• anda liikmesriikidele mõjusamad vahendid pettusevastaseks võitluseks, tugevdades

seeläbi õiguste kaitset ja õiglast liikuvust.

Endiselt esineb piiriülestes sotsiaalkindlustusega seotud olukordades probleeme üksikisikute,

ettevõtjate ja riiklike ametiasutuste vahelises teabevahetuses. Üksikisikutel on piiriülese

liikumise, reisimise või töötamise korral sageli raske oma sotsiaalkindlustusõigusi kiiresti

tõendada. Samal ajal puuduvad sotsiaalkindlustusasutustel, tööinspektsioonidel ja

tervishoiuteenuse osutajatel tõhusad ja turvalised viisid selle teabe kinnitamiseks kõigis

liikmesriikides. Samas on ettevõtjatel – eriti väikestel ja keskmise suurusega ettevõtjatel

(VKEd) – pidevalt raskusi nõuete sujuval täitmisel, kui nad saadavad töötajaid ajutiselt

välismaale tööle6.

Probleem tuleneb järgmisest:

• sotsiaalkindlustusdokumentide, sealhulgas Euroopa ravikindlustuskaardi taotlemise,

väljastamise ja kontrollimise olemasolevad menetlused, mis on endiselt suuresti

paberipõhised;

• dokumentide vormingu ja kontrollimeetodite piiratud piiriülene koostalitlusvõime ja

standardimine;

• protsessid, mis ei vasta piisavalt üksikisikute ja ettevõtjate vajadustele.

See põhjustab ebatõhusust, tarbetut menetluslikku keerukust, suuremaid kulusid, ajakadu,

vigu ja pettusi. See võib raskendada juurdepääsu sotsiaalkindlustushüvitistele teistes

liikmesriikides, luues seega konkreetseid takistusi ELi-sisesele liikuvusele,7

asutamisvabadusele ja teenuste piiriülesele osutamisele.

Selleks käivitati Euroopa sotsiaalõiguste samba tegevuskava raames Euroopa

sotsiaalkindlustuspassi (ESSPASS) katseprojekt. Projekti eesmärk oli uurida digilahendust

sotsiaalkindlustusdokumentide väljastamiseks ja piiriüleseks kontrollimiseks. Aastatel 2021–

6 2025. aasta ühtse turu strateegia kohaselt peetakse töötajate lähetamise menetlustega seotud

haldustakistusi üheks kõige olulisematest takistustest, mis ei võimalda ettevõtjatel teistesse

liikmesriikidesse laieneda. Vt ka ühtse turu normide täitmise tagamise rakkerühma aruanne, lk 12. 7 Draghi aruandes rõhutatakse, et hirm kaotada teistes liikmesriikides juurdepääs sotsiaalkaitsele või

kogeda raskusi juurdepääsul sotsiaalkindlustusele pärsib inimeste ümberasumist, kuigi ELi

õigusaktidega on tagatud sotsiaalkindlustusõiguste ülekantavus.

ET 4 ET