Dokumendiregister | Siseministeerium |
Viit | 5-1/66-1 |
Registreeritud | 18.10.2024 |
Sünkroonitud | 21.10.2024 |
Liik | Sissetulev kiri |
Funktsioon | 5 EL otsustusprotsess ja rahvusvaheline koostöö |
Sari | 5-1 Euroopa Liidu otsustusprotsessi dokumendid (AV) |
Toimik | 5-1/2024 |
Juurdepääsupiirang | Avalik |
Juurdepääsupiirang | |
Adressaat | Siseministeerium |
Saabumis/saatmisviis | Siseministeerium |
Vastutaja | Katarina Budrik (kantsleri juhtimisala, Euroopa Liidu ja välissuhete osakond) |
Originaal | Ava uues aknas |
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EN EN
EUROPEAN COMMISSION
Strasbourg, 8.10.2024
COM(2024) 671 final
2024/0248 (CNS)
Proposal for a
COUNCIL REGULATION
on the issuance of and technical standards for digital travel credentials based on identity
cards
(Text with EEA relevance)
{SWD(2024) 671 final} - {SWD(2024) 672 final}
EN 1 EN
EXPLANATORY MEMORANDUM
1. CONTEXT OF THE PROPOSAL
• Reasons for and objectives of the proposal
Directive 2004/38/EC of the European Parliament and of the Council1 provides that Union
citizens can exercise their right to free movement and residence using identity cards and
passports. These travel documents are high-security physical documents based on the
specifications of the International Civil Aviation Organization (ICAO), and are equipped with
a contactless storage medium (chip) containing the holder’s biographic data, facial image and
two fingerprints.
Since 2016, ICAO has been working to digitalise travel documents to facilitate air travel. The
result of this work by ICAO is the development of a digital travel credential standard that
makes use of the personal data (excluding fingerprints) stored on the chip of a travel
document. A digital travel credential can be stored securely, for example on a mobile phone,
either for single use or for multiple uses. Holders can share their digital travel credential with
relevant stakeholders ahead of travel, such as border authorities and carriers, using an
interface such as a mobile phone application. The first version of the ICAO digital travel
credential technical standard2 has already been finalised and tested in pilot projects3.
That technological progress in the field of travel documents could be harnessed to facilitate
the exercise of the right to free movement, by using the data in the contactless chip of
physical documents to create digital travel credentials4. In the context of this proposal, ‘digital
travel credential’ means a digital representation of the person’s identity derived from the
information stored in the chip of the identity card that can be securely and reliably validated
using the public key infrastructure of the Member State authority issuing the identity card.
Such a digital travel credential should contain the same personal data, including the holder’s
facial image, as the identity card based on which they are created, with the exception of the
holder’s fingerprints.
Digital travel credentials based on identity cards have the potential to make it easier for Union
citizens to exercise their right to free movement. Because Union citizens may use their
identity cards to cross the external borders of the Schengen area, such digital travel credentials
would allow them to pass through border controls more quickly and more smoothly.
1 Directive 2004/38/EC of the European Parliament and of the Council of 29 April 2004 on the right of
citizens of the Union and their family members to move and reside freely within the territory of the
Member States amending Regulation (EEC) No 1612/68 and repealing Directives 64/221/EEC,
68/360/EEC, 72/194/EEC, 73/148/EEC, 75/34/EEC, 75/35/EEC, 90/364/EEC, 90/365/EEC and
93/96/EEC (OJ L 158, 30.4.2004, p. 77, ELI: http://data.europa.eu/eli/dir/2004/38/oj). 2 See ICAO, Guiding Core Principles for the Development of Digital Travel Credential (DTC) and
Digital Travel Credentials (DTC), Virtual Component Data Structure and PKI Mechanisms, Technical
report version 1.2, October 2020. 3 See, for example, Raja Rajavartiolaitos, “Finland and Croatia are testing digital travel credentials in
external border traffic in a DTC Pilot project”, 03.02.2023, available online at: https://raja.fi/-/suomi-ja-
kroatia-kokeilevat-digitaalisen-matkustusasiakirjan-kayttoa-ulkorajaliikenteessa-dtc-
pilottiprojektissa?languageId=en_US; Government of Netherlands, “Dutch participation in European
DTC pilot”, 27.10.2023, available online at
https://www.government.nl/documents/publications/2023/02/23/dtc. 4 For more details regarding the crossing of the external borders of the area without internal border
controls, see COM(2024) 670 final.
EN 2 EN
For this purpose, this initiative goes side-by-side with a proposal for a regulation of the
European Parliament and of the Council establishing an application for the electronic
submission of travel data (“EU Digital Travel application”) and amending Regulations (EU)
2016/399 and (EU) 2018/1726 of the European Parliament and of the Council and Council
Regulation (EC) No 2252/2004, as regards the use of digital travel credentials5. Among other
things, that proposal introduces a digital travel credential based on passports and sets out
specifications for the ‘EU Digital Travel application’, a mobile phone application for the
issuance and submission of digital travel credentials for advance check ahead of travel.
Adopting both proposals at the same time ensures consistency in the developments for
identity cards and passports, taking into account that both types of travel documents can be
used to exercise the right to free movement. As a result, Union citizens holding an identity
card should be able to use the ‘EU Digital Travel application’ to create and submit identity
card-based digital travel credentials just like when using passports.
Once available, digital travel credentials could also be used to facilitate other aspects of free
movement, such as registering with national authorities when taking up residence in another
Member State, which has the potential to reduce administrative burden. At a later stage, it
may also become possible to exercise free movement based on a digital travel credential only,
that is, without the need for a physical identity card or passport. Lastly, an authentic digital
travel credential could facilitate access to electronic identification schemes, and to services
that require reliable identification. This has the potential to simplify the daily life of Union
citizens, including those that reside in a Member State other than that of which they are a
national.
Industry and national governments have already begun exploring ways of using digital travel
information to make travel a more seamless and customer-centric process. The Commission
considers that a uniform standard for digital travel credentials should be laid down at Union
level, as announced in the 2023 Commission work programme6, because this would: (i) avoid
fragmentation; (ii) ensure compliance with Union values; and (iii) guarantee that all Union
citizens can benefit from digital travel credentials. This would also enable the Union to shape
progress on global standards, and promote both its economic interests and its technological
strategic autonomy.
In view of the above, this initiative aims to set up a digital travel credential based on identity
cards issued by Member States that Union citizens can use when exercising their right to free
movement.
To achieve global interoperability, the Union’s technical specifications for identity card-based
digital travel credentials should be based on ICAO’s digital travel credential standard. To
ensure that all Union citizens who hold an identity card can obtain a digital travel credential,
all Member States issuing identity cards should offer digital travel credentials to their
nationals. At the same time, Union citizens should not be obliged to hold a digital travel
credential if they wish to exercise free movement using their physical identity card or passport
only.
To promote the uptake of digital travel credentials, Union citizens should have the option to
receive an identity card-based digital travel credential when they receive a new physical
identity card. In addition, they should be able to obtain a digital travel credential using an
already existing and valid identity card, including by creating it via mobile phone
5 COM(2024) 670 final. 6 COM(2022) 548 final.
EN 3 EN
applications. Lastly, Union citizens should be able to store the digital travel credential in their
European Digital Identity Wallet7.
• Consistency with existing policy provisions in the policy area
This initiative necessitates that the identity cards issued by Member States comply with a
standard that ensures that these identity cards can serve as the basis for the creation of digital
travel credentials. For this reason, this initiative builds on – and is aligned with – the relevant
rules at Union level on identity cards, currently found in Regulation (EU) 2019/1157 of the
European Parliament and of the Council8. Following the Court of Justice’s invalidation of
Regulation (EU) 2019/1157 in Landeshauptstadt Wiesbaden9, the Commission adopted, on
23 July 2024, a proposal10 setting in motion the procedure for a new regulation on identity
card standards.
This initiative does not amend the substantive conditions laid down in Directive 2004/38/EC
on the right of Union citizens to move and reside freely within the territory of the Member
States. At the same time, by providing Union citizens with an identity card-based digital
travel credential, this initiative seeks to make it easier for Union citizens to exercise that right
in full consistency with Directive 2004/38/EC.
• Consistency with other Union policies
This initiative and the implementation of digital travel credentials in the Union more generally
is closely linked to ongoing developments on creating a European digital identity and the
European Digital Identity Wallet. It should be possible to store digital travel credentials
alongside digital driving licences, medical prescriptions and other documents in the European
Digital Identity Wallet.
This initiative is also connected with the Commission’s ‘Digital Europe’ strategy of 2020,
which aims to support the uptake of technology that will make a real difference to people’s
daily lives. The initiative also supports the ‘Digital Compass’ for the Union’s ‘Digital
Decade’ programme, part of which promotes the digitalisation of public services. The specific
objective of the ‘Digital Compass’ is for all Union citizens to have access to digital
identification by the end of 203011. In the European Declaration on Digital Rights and
Principles for the Digital Decade12, the Commission and the co-legislators committed to
ensuring that people living in the Union are offered the possibility to use an accessible,
voluntary, secure and trusted digital identity. More generally, the proposal helps to expand the
use of digital technologies.
The initiative also responds to the general global trend in digitalisation and to travellers’
expectations for ever faster and more seamless travel formalities.
7 Laid down in Regulation (EU) 2024/1183 of the European Parliament and of the Council of 11 April
2024 amending Regulation (EU) No 910/2014 as regards establishing the European Digital Identity
Framework (OJ L, 2024/1183, 30.4.2024, ELI: http://data.europa.eu/eli/reg/2024/1183/oj). 8 Regulation (EU) 2019/1157 of the European Parliament and of the Council of 20 June 2019 on
strengthening the security of identity cards of Union citizens and of residence documents issued to
Union citizens and their family members exercising their right of free movement (OJ L 188, 12.7.2019,
p. 67, ELI: http://data.europa.eu/eli/reg/2019/1157/oj). 9 Judgment of 21 March 2024, C-61/22, Landeshauptstadt Wiesbaden, ECLI:EU:C:2024:251. 10 COM(2024) 316 final. 11 https://commission.europa.eu/strategy-and-policy/priorities-2019-2024/europe-fit-digital-age/europes-
digital-decade-digital-targets-2030_en 12 OJ C 23, 23.1.2023, p. 1.
EN 4 EN
2. LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY
• Legal basis
Article 77(3) of the Treaty on the Functioning of the European Union (TFEU) confers on the
Union a competence to adopt provisions on passports, identity cards, residence permits or any
other such document intended to facilitate the exercise of the right to move and reside freely
within the territory of the Member States guaranteed in Article 20(2)(a) TFEU13.
The objective of this proposal is to facilitate the exercise of the right to free movement of
Union citizens in a secure environment by providing them with authentic digital travel
credentials based on the identity cards issued to them by the Member States. This proposal is
thus inextricably linked to the rules on physical identity cards. Therefore, this proposal is
based on the same legal basis as the Commission’s proposal for a Council regulation on
strengthening the security of identity cards of Union citizens and of residence documents
issued to Union citizens and their family members exercising their right of free movement14.
Article 77(3) TFEU provides for a special legislative procedure. When adopting measures
pursuant to Article 77(3) TFEU, the Council must act unanimously after consulting
Parliament.
• Subsidiarity (for non-exclusive competence)
The current Union legal framework does not allow for the use of digital solutions in the
context of the exercise of the right to free movement. Due to the nature of the problem and the
need to ensure interoperability, Member States themselves cannot effectively introduce a
Union-wide uniform format for digital travel credentials based on identity cards, and therefore
cannot facilitate the exercise of free movement on the basis of such digital travel credentials.
Any national solutions would bear the risk of not being accepted in other Member States, and
would raise questions regarding their compliance with Union law when used in the context of
free movement.
This proposal aims to facilitate the exercise of the right to free movement by giving Union
citizens the option to obtain and use digital travel credentials based on their national identity
cards. For reasons of scale and expected impacts, the objectives can only be achieved
efficiently and effectively at Union level.
At the same time, this proposal does not require Member States to introduce identity cards
where they are not provided for under national law.
• Proportionality
The proposal does not go beyond what is necessary to achieve its objective, as it does not
fundamentally alter the rules and provisions of Directive 2004/38/EC or those laid down in
the Commission’s proposal for a Council regulation on strengthening the security of identity
cards of Union citizens and of residence documents issued to Union citizens and their family
members exercising their right of free movement15.
In addition, the decision as to whether or not to obtain a digital travel credential would be left
to individual Union citizens. Those who decide not to do so would still be able to exercise
their right to free movement using their physical passport or identity card only. However, they
13 Judgment of 21 March 2024, C-61/22, Landeshauptstadt Wiesbaden, ECLI:EU:C:2024:251, paragraph
54. 14 COM(2024) 316 final. 15 COM(2024) 316 final.
EN 5 EN
might not benefit from some of the facilitations available to Union citizens who also hold a
digital travel credential.
Additional explanations on the proportionality of the different policy options – including
those not retained – are given in the impact assessment accompanying this proposal16.
• Choice of the instrument
A regulation is the sole legal instrument ensuring the direct, immediate and common
implementation of Union law in all Member States.
3. RESULTS OF EX-POST EVALUATIONS, STAKEHOLDER
CONSULTATIONS AND IMPACT ASSESSMENTS
• Stakeholder consultations
The preparation of this initiative and the accompanying proposal17 involved a wide range of
consultations of stakeholders, including Member State authorities, Union agencies, industry,
the general public, and international organisations involved in international travel. A public
consultation was organised as part of the impact assessment18. A special Eurobarometer
survey was also carried out to gain further insights into Union citizens’ views on the use of
digital travel credentials for cross-border travel19. Most stakeholders that were consulted
expressed wide support for the initiative, underlining the expected benefits and convenience
for both national authorities and travellers that would result from enabling travellers to use
digital travel credentials.
The Commission has taken account of the feedback received in these consultation activities in
preparing this initiative. For example, the initiative provides for the use of digital travel
credentials to be voluntary (not mandatory for travellers) and it proposes a uniform technical
standard for all Union digital travel credentials.
• Collection and use of expertise
To help prepare the impact assessment, the Commission contracted an external study on a
Union initiative on the digitalisation of travel documents and facilitation of travel to develop
options and assess their potential impacts. The study involved collecting stakeholder views
and expertise in the form of strategic interviews, targeted consultations, in-depth interviews
and the public consultation.
Three Member States (Finland, Croatia and the Netherlands) are also carrying out Union-
funded pilot projects to test digital travel credentials for cross-border travel. The experiences
and results received so far from these pilot projects were taken into account and reflected in
the impact assessment and this proposal.
• Impact assessment
In preparing this initiative and the accompanying proposal20, the Commission also conducted
an impact assessment21. The impact assessment evaluated three policy options, each entailing
legislative measures given that they required amending or complementing existing Union
16 SWD(2024) 671 final. 17 COM(2024) 670 final. 18 https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/13514-Travel-digitalising-
travel-documents-to-make-travelling-easier/public-consultation_en 19 Special Eurobarometer 536 report on the digitalisation of travel documents and the facilitation of travel. 20 COM(2024) 670 final. 21 SWD(2024) 671 final.
EN 6 EN
legislation on travel documents and border checks. This ruled out a ‘soft law’ approach from
the outset.
Each policy option contained a few common building blocks, namely: (i) a transition period;
(ii) the use of the existing international ICAO technical standard; (iii) the voluntary use of
digital travel credentials by travellers (as confirmed by the public consultation); and (iv) a
central Union technical solution for creating and submitting digital travel credentials.
The main difference between the three policy options is the level of flexibility enjoyed by
Member States on: (i) the possibility for people to receive digital travel credentials (as some
Member States have explicitly prohibited access to the chip data of travel documents); and (ii)
the use of digital travel credentials in the context of cross-border travel.
The summary below only covers the aspects that are relevant to this proposal.
Policy option 1 allowed Member States to make digital travel credentials available to
travellers.
Policy option 2 obliged Member States to make digital travel credentials available to
travellers.
Policy option 3 obliged Member States to make digital travel credentials available to
travellers and laid down a harmonised approach regarding their use across Member States.
Based on the findings of the impact assessment, the preferred option was option 3 combined
with a suitable transition period. Under option 3, all Member States would offer digital travel
credentials based on the travel documents they already issue. Union citizens would be able to
use their digital travel credentials: (i) in the Member States that choose to implement digital
travel credentials during a transition period; and (ii) in all Member States concerned after the
transition period and once the common Union-wide technical solution is ready.
Overall, the preferred option has the most positive impact in terms of meeting the objectives
to: (i) enable the smoother and easier exercise of free movement; and (ii) uphold strict
security standards. This impact is mainly due to the dual obligation on Member States to
allow individuals to both obtain digital travel credentials and actually use them for travel
purposes. Fulfilling this dual obligation is expected to result in the highest expected uptake of
digital travel credentials of all policy options. The preferred option would give every Union
citizen holding a compliant identity card the option to obtain a digital travel credential in the
most effective way.
Standardising identity card-based digital travel credentials would also bring further benefits,
such as greater efficiency for transport carriers (airlines, passenger shipping, rail companies,
etc.) that might decide on a voluntary basis to integrate these digital travel credentials into
their workflows. By incorporating digital travel credentials into the European Digital Identity
Wallet, this proposal would enable Union citizens to make further use of them.
The preferred option puts a limited burden on Member States linked to the delivery of digital
travel credentials, which is offset by the expected positive impact of the measures. The
ultimate benefits will depend on the uptake of digital travel credentials. Further information
on the costs, benefits and scenario-based evaluations of the preferred option are provided in
the impact assessment.
No significant environmental impacts are expected from this initiative, in particular given that
the initiative is not expected to have an impact on the volume of travel.
EN 7 EN
The Regulatory Scrutiny Board issued a positive opinion on the impact assessment on
15 December 202322, in which it recommended that the impact assessment better distinguish
benefits in terms of competitiveness and better assess costs and benefits of the different
options.
• Regulatory fitness and simplification
No specific impacts on small and medium-sized enterprises were identified in the process of
preparing this proposal.
As this proposal would set up an identity card-based digital travel credential, it is fully
compatible with the ‘digital by default’ principle.
• Fundamental rights
This proposal has a positive impact on Union citizens’ fundamental right to free movement
and residence under Article 45 of the Charter of Fundamental Rights of the European Union
(‘the Charter’) by introducing a digital travel credential based on identity cards aimed at
facilitating the exercise of that right.
This proposal will lead to the processing of personal data (including biometric data, namely
the facial image of the holder of the digital travel credential). The obligation to include a
facial image in the digital travel credential issued on the basis of identity cards constitutes a
limitation to both the right to respect for private life and the right to the protection of personal
data23. Limitations on those rights must be provided for by law and must respect the essence
of those rights. In addition, in compliance with the principle of proportionality, such
limitations may be made only if they are necessary and genuinely meet objectives of general
interest recognised by the Union or the need to protect the rights of others24.
In this context, the proposal provides that applicable Union legislation25, notably the
provisions on the protection of personal data in the context of physical identity cards26, would
apply. The limitations, as well as the conditions for application and scope of those limitations,
will thus be laid down in Union legislation, primarily in this proposal as well as the proposed
regulation on identity cards27. The obligation to include the facial image of the holder does
not adversely affect the essence of the fundamental rights enshrined in Articles 7 and 8 of the
Charter, as the information provided by the facial image does not, in itself, make it possible to
have an overview of the private and family life of data subjects28.
22 SEC(2024) 670. 23 Judgment of 21 March 2024, C-61/22, Landeshauptstadt Wiesbaden, ECLI:EU:C:2024:251, paragraphs
73 to 74. 24 Judgment of 21 March 2024, C-61/22, Landeshauptstadt Wiesbaden, ECLI:EU:C:2024:251, paragraph
76. 25 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) and 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). 26 COM(2024) 316 final. 27 COM(2024) 316 final. 28 See also judgment of 21 March 2024, C-61/22, Landeshauptstadt Wiesbaden, ECLI:EU:C:2024:251,
paragraphs 80 to 81.
EN 8 EN
The inclusion of the facial image in the digital travel credential is intended to enable the
holder of that credential to be reliably identified by comparing their facial image to that in the
digital travel credential when the digital travel credential is presented, and thus to combat
document fraud, which is an objective of general interest recognised by the Union, as also
confirmed by the Court of Justice29.
The inclusion of the facial image in the digital travel credential is appropriate for attaining the
general-interest objective of combating document fraud, as it is a means to reliably verify the
identity of the holder of the digital travel credential, and thereby to reduce the risk of fraud.
This is not called into question by the fact that digital travel credentials do not, unlike physical
identity cards, include the fingerprints of the holder, because digital travel credentials are used
in combination with a physical document rather than replacing them. If they have doubts as to
the authenticity of the digital travel credential or the identity of the holder, competent
authorities retain the possibility to use the fingerprints stored in the chip of the identity card.
There are currently no standards for the inclusion of fingerprints in digital travel credentials,
and due to the cryptographic protection of fingerprints, it is in any event not possible to
extract them from the chip of the identity card.
The inclusion of the facial image is also necessary to attain the general interest pursued.
Without its inclusion, the digital travel credential would only contain biographic data of the
holder (such as name, date of birth, etc.), which is not a reliable and effective means of
identification.
In addition, the digital travel credentials based on this proposal will not contain personal data
that are not already contained in the chip of the identity card on the basis of which it is issued.
In fact, they will contain fewer personal data, given that the digital travel credential does not
contain the fingerprints of the holder.
As already noted by the Court of Justice in Landeshauptstadt Wiesbaden on physical identity
cards30, the limitations resulting from the inclusion of such biometric data are not – having
regard to the nature of the data at issue, the nature of the processing operations, the manner in
which they are carried out and the safeguards laid down – of a seriousness that is
disproportionate when compared with the significance of the objective pursued. Accordingly,
such a measure must be regarded as being based on a fair balance between, on the one hand,
those objectives and, on the other, the fundamental rights involved. As a result, the limitations
on the exercise of the rights guaranteed in Articles 7 and 8 of the Charter are not contrary to
the principle of proportionality.
4. BUDGETARY IMPLICATIONS
The proposal has no implications for the Union budget.
5. OTHER ELEMENTS
• Implementation plans and monitoring, evaluation and reporting arrangements
Within 5 years of the creation of the first digital travel credentials using the ‘EU Digital
Travel application’, the Commission will evaluate the effectiveness, efficiency, relevance,
29 Judgment of 21 March 2024, C-61/22, Landeshauptstadt Wiesbaden, ECLI:EU:C:2024:251, paragraph
87 and case-law cited. 30 Judgment of 21 March 2024, C-61/22, Landeshauptstadt Wiesbaden, ECLI:EU:C:2024:251, paragraphs
106-125.
EN 9 EN
coherence and Union added value of the proposal. This will ensure that sufficient data on all
aspects of the regulation are available. That evaluation could be carried out together with the
evaluation provided for in the accompanying proposal31.
• Detailed explanation of the specific provisions of the proposal
Article 1 describes the subject matter of the regulation.
Article 2 contains the substantive rules on the creation of digital travel credentials based on
identity cards that have been issued by Member States to their own nationals as referred to in
Article 4(3) of Directive 2004/38/EC in a format that complies with the proposed regulation
on physical identity cards32.
When issuing a new identity card, Member States should provide applicants, at their request,
with a corresponding digital travel credential. Holders of compatible identity cards should
also be able to request a corresponding digital travel credential from the Member States
having issued the identity card at a later stage.
In addition, holders of an identity card should be able to create a digital travel credential based
on that card. It should be possible for holders to be issued with a digital travel credential
remotely by means available to the person concerned, such as a mobile phone capable of
reading the contactless chip of the identity card together with a mobile phone application.
Before a digital travel credential is created, Member States should put in place a system to
confirm the authenticity and integrity of the chip of the identity card and to match the facial
image of the person seeking to create the digital travel credential against the facial image
stored on the chip. This is to ensure that the digital travel credential is created by the person to
whom the identity card was issued.
For the purpose of creating a digital travel credential themselves, holders of an identity card
should be able to use the ‘EU Digital Travel application’, provisions for which are laid down
in the accompanying proposal33. This application will support the creation of digital travel
credentials based on identity cards, given that they will use the same technical standards as
digital travel credentials based on passports.
Digital travel credentials should contain the same personal data, including the holder’s facial
image, as the identity card on which they are based, apart from the fingerprints of the holder,
which should not be included.
It should be possible for holders of a digital travel credential to store it in the European Digital
Identity Wallet.
In addition, this article empowers the Commission to set, by way of implementing act, the
latest date as of which Member States are to enable the creation of digital travel credentials
using the ‘EU Digital Travel application’. This empowerment is meant to ensure that the legal
requirement to enable the creation of digital travel credentials using the ‘EU Digital Travel
application’ applies only once that application has become operational.
Article 3 sets out the obligation for Member States to designate contact points for the
implementation of the regulation. These could be the same as those designated for the
implementation of the proposed regulation on physical identity cards34.
31 COM(2024) 670 final. 32 COM(2024) 316 final. 33 COM(2024) 670 final. 34 COM(2024) 316 final.
EN 10 EN
Article 4 provides that, in addition to the generally applicable Union data protection legal
framework, the specific data protection framework of the proposed regulation on identity
cards35 is to apply to the processing of personal data under this regulation. No separate data
protection framework is needed given that the digital travel credentials established by this
regulation contain the same personal data as physical identity cards, except for the
fingerprints of the holder, and are intended to be used for the same purposes.
Article 5 empowers the Commission to adopt the necessary technical specifications,
procedures and requirements for digital travel credentials issued on the basis of identity cards,
including those regarding their: (i) data schema and format; (ii) issuance and disclosure
process; (iii) validity; (iv) trust model; (v) authentication and validation; and (vi) revocation.
These technical specifications should, as far as possible, be based on the relevant international
standards and practices agreed upon at the level of ICAO to ensure both a consistent approach
at international level and the global interoperability of digital travel credentials.
The technical specifications will also aim to ensure that the digital travel credential can be
stored in the European Digital Identity Wallet.
Article 6 contains rules on the committee tasked with assisting the Commission in
implementing the regulation.
The ‘Committee on a uniform visa format’36 established by Article 6 of Council Regulation
(EC) No 1683/9537 is designated as the responsible committee, given that is equally
responsible for assisting the Commission regarding the proposed regulation on physical
identity cards38.
Article 7 sets out that the Commission is to evaluate the regulation and report thereon within
5 years after the date as of which Member States are to enable the creation of digital travel
credentials using the ‘EU Digital Travel application’ as per the implementing act to be
adopted pursuant to Article 2. This evaluation will be carried out in line with the
Commission’s ‘better regulation’ guidelines39 and pursuant to paragraphs 22 and 23 of the
Interinstitutional Agreement of 13 April 2016 on Better Law-Making40. In order to be able to
issue such a report, the Commission will require input from Member States and relevant
Union agencies.
Article 8 contains rules on the entry into force and application of the regulation. It provides
that Member States must start to issue identity card-based digital travel credentials outside the
‘EU Digital Travel application’ 12 months after the adoption of the necessary technical
specifications referred to in Article 5. Creating identity card-based digital travel credentials
using the ‘EU Digital Travel application’ will become possible at a later stage, and only once
the Commission has adopted the implementing act referred to Article 2.
35 COM(2024) 316 final. 36 https://ec.europa.eu/transparency/comitology-register/screen/committees/C20800/consult?lang=en 37 Council Regulation (EC) No 1683/95 of 29 May 1995 laying down a uniform format for visas (OJ L
164, 14.7.1995, p. 1, ELI: http://data.europa.eu/eli/reg/1995/1683/oj). 38 COM(2024) 316 final. 39 https://commission.europa.eu/law/law-making-process/planning-and-proposing-law/better-
regulation/better-regulation-guidelines-and-toolbox_en 40 Interinstitutional Agreement between the European Parliament, the Council of the European Union and
the European Commission on Better Law-Making (OJ L 123, 12.5.2016, p. 1, ELI:
http://data.europa.eu/eli/agree_interinstit/2016/512/oj).
EN 11 EN
2024/0248 (CNS)
Proposal for a
COUNCIL REGULATION
on the issuance of and technical standards for digital travel credentials based on identity
cards
(Text with EEA relevance)
THE COUNCIL OF THE EUROPEAN UNION,
Having regard to the Treaty on the Functioning of the European Union, and in particular
Article 77(3) thereof,
Having regard to the proposal from the European Commission,
After transmission of the draft legislative act to the national parliaments,
Having regard to the opinion of the European Parliament1,
Acting in accordance with a special legislative procedure,
Whereas:
(1) Pursuant to Directive 2004/38/EC of the European Parliament and of the Council2
physical identity cards and passports are the documents enabling Union citizens to
exercise their right to free movement and residence.
(2) In order to increase the reliability and acceptance of identity cards issued by Member
States to their nationals and of residence documents issued by Member States to Union
citizens and their family members and, therefore, facilitate the exercise of the right to
free movement, Council Regulation (EU) XXXX/XXXX3 [COM(2024) 316 final]
strengthens the security standards applicable to those identity cards and residence
documents. For identity cards, that Regulation sets out the security standards, format
and specifications with which such physical documents are to comply with.
(3) To facilitate the exercise of the right to free movement and residence, rules at Union
level should be laid down for the creation of identity card-based digital travel
credentials, that is, a digital representation of the person’s identity that is derived from
the information stored in the storage medium of an identity card and that can be
validated using the public key infrastructure of the authority issuing the identity card.
Doing so also serves to avoid the emergence of incompatible standards within the
1 OJ C […], […], p. […]. 2 Directive 2004/38/EC of the European Parliament and of the Council of 29 April 2004 on the right of
citizens of the Union and their family members to move and reside freely within the territory of the
Member States amending Regulation (EEC) No 1612/68 and repealing Directives 64/221/EEC,
68/360/EEC, 72/194/EEC, 73/148/EEC, 75/34/EEC, 75/35/EEC, 90/364/EEC, 90/365/EEC and
93/96/EEC (OJ L 158, 30.4.2004, p. 77, ELI: http://data.europa.eu/eli/dir/2004/38/oj). 3 Council Regulation (EU) XXXX/XXXX of […] on strengthening the security of identity cards of
Union citizens and of residence documents issued to Union citizens and their family members
exercising their right of free movement (OJ L […], […], p. […], ELI: […]).
EN 12 EN
Union, and makes sure that all Union citizens holding an identity card can obtain
digital travel credentials if they so wish.
(4) When the exercise of the right to free movement involves travel to another Member
State, the use of identity card-based digital travel credentials could speed up any
applicable checks. Accordingly, Union citizens should be entitled to receive and use
digital travel credentials based on their identity cards. At the same time, they should
not be obliged to hold a digital travel credential or to continue using it once obtained.
(5) To make it easy for Union citizens to obtain a digital travel credential, Member States
should, when issuing an identity card and upon request of the applicant, also issue
Union citizens with a corresponding digital travel credential based on harmonised
Union specifications.
(6) In addition, given that a Union citizen may not have chosen to receive a digital travel
credential when being issued an identity card, Member States should offer holders of
identity cards issued by them in a format that complies with the requirements of
Regulation (EU) XXXX/XXXX [COM(2024) 316 final] the possibility to create a
corresponding digital travel credential at a later stage, including remotely by using
devices such as mobile phones capable of reading the storage medium of the identity
card together with a mobile phone application.
(7) When a digital travel credential is created remotely, Member States should ensure, by
configuring the necessary software solution accordingly, that the authenticity and
integrity of the storage medium of the physical identity card are verified and that the
facial image of the person seeking to create the digital travel credential is matched
against the facial image stored on the storage medium before the credential is created.
This is to ensure that digital travel credentials are only created by the person to whom
the identity card was issued.
(8) Given that the ‘EU Digital Travel application’, provisions for which are laid down in
Regulation (EU) XXXX/XXXX of the European Parliament and of the Council4
[COM(2024) 670 final], will allow for the creation of digital travel credentials based
on identity cards that meet the requirements of Regulation (EU) XXXX/XXXX
[COM(2024) 316 final], Union citizens holding such identity cards should be able to
use that application when remotely creating corresponding digital travel credentials.
(9) The digital travel credential should support being stored in European Digital Identity
Wallets issued in accordance with Regulation (EU) No 910/2014 of the European
Parliament and of the Council5.
(10) Given that they are derived from an identity card, digital travel credentials should
contain the same personal data, including a facial image. The inclusion of biometric
data, namely the facial image, in the digital travel credential should enable the holder
of that credential to be reliably identified by comparing their facial image to that in the
digital travel credential when the digital travel credential is presented, and thus to
4 Regulation (EU) XXXX/XXXX of the European Parliament and of the Council of […] establishing an
application for the electronic submission of travel data (“EU Digital Travel application”) and amending
Regulations (EU) 2016/399 and (EU) 2018/1726 of the European Parliament and of the Council and
Council Regulation (EC) No 2252/2004, as regards the use of digital travel credentials (OJ L […], […],
p. […], ELI: […]). 5 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 (OJ L 257,
28.8.2014, p. 73, ELI: http://data.europa.eu/eli/reg/2014/910/oj).
EN 13 EN
combat document fraud. As the Court of Justice confirmed, combating document
fraud, which includes, among other things, combating the production of false
documents and combating the use of genuine documents by people other than the true
owners of those genuine documents, constitutes an objective of general interest
recognised by the Union.
(11) However, digital travel credentials should not include the fingerprints of the holder,
which are present in the storage medium of identity cards to combat document fraud.
There are currently no standards for their inclusion in digital travel credentials, and
due to their cryptographic protection, it is in any event not possible to extract
fingerprints from the storage medium of identity cards. The absence of fingerprints in
digital travel credentials does not undermine the protection against the fraudulent use
of identity cards, as digital travel credentials are used in combination with physical
identity cards rather than replacing them. If competent authorities have doubts as to
the authenticity of the digital travel credential or the identity of the holder, they retain
the possibility to use the fingerprints stored in the storage medium of the identity card.
(12) To boost the uptake of digital travel credentials, and without prejudice to the
competence of Member States to determine the fees for the issuance of identity cards,
digital travel credentials should be issued free of charge.
(13) Member States should exchange with each other the information necessary to allow
for the verification of the authenticity and validity of digital travel credentials.
(14) Given that a digital travel credential issued pursuant to this Regulation consists of the
information in the storage medium of the holder’s identity card, its issuance should
facilitate the exercise of free movement and residence for persons holding such a
document, including in the context of entry into the territory of a Member State.
(15) Regulation (EU) 2016/679 of the European Parliament and of the Council6 applies
with regard to the personal data to be processed in the context of the application of this
Regulation. Given that the digital travel credentials established by this Regulation
contain the same personal data as identity cards, except for the fingerprints of the
holder, and are used for the same purposes, the specific rules in Regulation (EU)
XXXX/XXXX [COM(2024) 316 final] on the protection of personal data should also
apply to digital travel credentials covered by this Regulation.
(16) In order to ensure uniform conditions for the issuance and creation of identity card-
based digital travel credentials, implementing powers should be conferred on the
Commission to adopt technical specifications, procedures and requirements, including
regarding their issuance process, validity, authentication, validation and revocation.
When drawing up the technical specifications for the digital travel credential, the
Commission should, as far as possible, base itself on the relevant international
standards and practices agreed upon through the International Civil Aviation
Organization to ensure both a consistent approach at international level and the global
interoperability of digital travel credentials. The Commission should also seek to
ensure accessibility for persons with disabilities in accordance with accessibility
requirements under Union law. In addition, implementing powers should be conferred
on the Commission to confirm that it is technically possible to create identity card-
6 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 14 EN
based digital travel credentials using the ‘EU Digital Travel application’, provisions
for which are laid down in Regulation (EU) XXXX/XXXX [COM(2024) 670 final]
and, on that basis, to establish the date as of which Member States should enable the
creation of identity card-based digital travel credentials using that application at the
latest. Those implementing powers should be exercised in accordance with Regulation
(EU) No 182/2011 of the European Parliament and of the Council7.
(17) Since the objectives of this Regulation, namely to facilitate the exercise of the right of
free movement by establishing identity card-based digital travel credentials, cannot be
sufficiently achieved by the Member States but can rather, by reason of the scale and
effects 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 in order to achieve those
objectives.
(18) In accordance with paragraphs 22 and 23 of the Interinstitutional Agreement
of 13 April 2016 on Better Law-Making8, the Commission should carry out an
evaluation of this Regulation in order to assess its actual effects and the need for any
further action.
(19) In accordance with Articles 1 and 2 of Protocol No 22 on the position of Denmark,
annexed to the Treaty on European Union and to the Treaty on the Functioning of the
European Union, Denmark is not taking part in the adoption of this Regulation and is
not bound by it or subject to its application.
(20) [In accordance with Article 3 of the Protocol No 21 on the position of the United
Kingdom and Ireland in respect of the area of freedom, security and justice, annexed
to the Treaty on European Union and the Treaty on the Functioning of the European
Union, Ireland has notified its wish to take part in the adoption and application of this
Regulation.] OR [In accordance with Articles 1 and 2 of Protocol No 21 on the
position of the United Kingdom and Ireland in respect of the area of freedom, security
and justice, annexed to the Treaty on European Union and to the Treaty on the
Functioning of the European Union, and without prejudice to Article 4 of that
Protocol, Ireland is not taking part in the adoption of this Regulation and is not bound
by it or subject to its application.]
(21) This Regulation respects fundamental rights and observes the principles recognised in
particular by the Charter of Fundamental Rights of the European Union (the Charter)
including the right of free movement and the right to the protection of personal data.
Member States should comply with the Charter when implementing this Regulation.
7 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 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). 8 Interinstitutional Agreement between the European Parliament, the Council of the European Union and
the European Commission on Better Law-Making (OJ L 123, 12.5.2016, p. 1, ELI:
http://data.europa.eu/eli/agree_interinstit/2016/512/oj).
EN 15 EN
(22) The European Data Protection Supervisor was consulted in accordance with Article
42(1) of Regulation (EU) 2018/1725 of the European Parliament and of the Council9
and delivered an opinion on XXXX10,
HAS ADOPTED THIS REGULATION:
Article 1
Subject matter
This Regulation lays down the framework for the issuance and creation of digital travel
credentials based on identity cards issued by Member States to Union citizens in accordance
with the requirements laid down in Regulation (EU) XXXX/XXXX [COM(2024) 316 final]
for the purpose of facilitating the exercise of the right referred to in Article 20(2)(a) of the
Treaty on the Functioning of the European Union by Union citizens holding such digital
travel credentials.
Article 2
Digital travel credentials
1. Upon request from the person having applied for an identity card, identity cards
issued by Member States shall be accompanied by a digital travel credential.
2. Upon request from the holder of an identity card issued in accordance with the
requirements of Regulation (EU) XXXX/XXXX [COM(2024) 316 final], the
Member State having issued the identity card shall issue a digital travel credential.
3. Member States shall offer holders of an identity card issued by them in accordance
with the requirements of Regulation (EU) XXXX/XXXX [COM(2024) 316 final] the
possibility to remotely create a digital travel credential. To that effect, holders shall
be able to use the ‘EU Digital Travel application’, provisions for which are laid down
in Regulation (EU) XXXX/XXXX [COM(2024) 670 final]. Holders shall be allowed
to access the parts of the storage medium of identity cards that are necessary for the
purpose of creating a digital travel credential.
Before the digital travel credential is created, Member States shall ensure that the
integrity and authenticity of the storage medium of the identity card are verified and
that the facial image of the person seeking to create the digital travel credential is
matched against the facial image stored on the storage medium.
4. Digital travel credentials issued or created pursuant to this Article shall:
(a) be based on the technical specifications adopted pursuant to Article 5;
(b) be in a format that enables their storage in European Digital Identity Wallets
issued in accordance with Regulation (EU) No 910/2014;
(c) be free of charge;
9 Regulation (EU) 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). 10 OJ C […], […], p. […].
EN 16 EN
(d) contain the same personal data, including facial image, as the identity card
based on which they are issued or created.
For the purpose of point (d), digital travel credentials issued or created pursuant to
this Article shall not include the fingerprints of the holder.
5. Member States shall enable the authentication and validation of digital travel
credentials in accordance with the technical specifications adopted pursuant to
Article 5.
6. Once the Commission has confirmed that it is technically possible to create digital
travel credentials based on identity cards issued in accordance with the requirements
laid down in Regulation (EU) XXXX/XXXX [COM(2024) 316 final] using the ‘EU
Digital Travel application’, provisions for which are laid down in Regulation (EU)
XXXX/XXXX [COM(2024) 670 final], Member States shall enable the creation of
digital travel credentials pursuant to paragraph 3 of this Article at the latest from the
date set by the Commission by means of an implementing act. That implementing act
shall be adopted in accordance with the examination procedure referred to in Article
6(2).
Article 3
Contact point
Each Member State shall designate an authority as the contact point for the implementation of
this Regulation. Each Member State shall communicate the name of that authority to the
Commission and the other Member States. If a Member State changes its designated
authority, it shall inform the Commission and the other Member States accordingly.
Article 4
Protection of personal data
Personal data stored in digital travel credentials issued or created pursuant to Article 2 shall be
processed in accordance with Article 11 of Regulation (EU) XXXX/XXXX [COM(2024) 316
final].
Article 5
Technical specifications, procedures and requirements
The Commission shall, by way of implementing acts, adopt technical specifications,
procedures and requirements for digital travel credentials issued or created on the basis of
identity cards, including on their:
(a) data schema and format;
(b) issuance and disclosure process;
(c) validity;
(d) trust model;
(e) authentication and validation;
(f) revocation.
Those implementing acts shall be adopted in accordance with the examination procedure
referred to in Article 6(2).
EN 17 EN
When adopting those technical specifications, the Commission shall take into account
accessibility requirements under Union law.
Article 6
Committee procedure
1. The Commission shall be assisted by the Committee established by Article 6 of
Council Regulation (EC) No 1683/9511. That committee shall be 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 7
Evaluation
By 5 years after the adoption of the implementing act referred to in Article 2(6), the
Commission shall carry out an evaluation of this Regulation and present a report on the main
findings to the European Parliament and the Council.
Member States and relevant Union agencies shall provide the Commission with the
information necessary for the preparation of that report.
Article 8
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.
Article 2(1) and Article 2(2) shall apply from 12 months after the entry into force of the
technical specifications, procedures and requirements referred to in Article 5.
This Regulation shall be binding in its entirety and directly applicable in the Member States in
accordance with the Treaties.
Done at Strasbourg,
For the Council
The President
11 Council Regulation (EC) No 1683/95 of 29 May 1995 laying down a uniform format for visas (OJ L
164, 14.7.1995, p. 1, ELI: http://data.europa.eu/eli/reg/1995/1683/oj).
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Eelnõude infosüsteemis (EIS) on antud täitmiseks ülesanne. Eelnõu toimik: 9.8.1/24-0480 - COM(2024) 670 Proposal for a REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL establishing an application for the electronic submission of travel data (“EU Digital Travel application”) and amending Regulations (EU) 2016/399 and (EU) 2018/1726 of the European Parliament and of the Council and Council Regulation (EC) No 2252/2004, as regards the use of digital travel credential Eelnõude kohta seisukoha esitamine Vabariigi Valitsuse istungile vastavalt Riigikantselei 17.10.2024 resolutsioonile. Osapooled: Siseministeerium Tähtaeg: 11.11.2024 00:00 Link eelnõu toimiku vaatele: https://eelnoud.valitsus.ee/main/mount/docList/d5791d05-ee5a-413c-8471-e336bcfa8b07 Link menetlusetapile: https://eelnoud.valitsus.ee/main/mount/docList/d5791d05-ee5a-413c-8471-e336bcfa8b07?activity=1 Eelnõude infosüsteem (EIS) https://eelnoud.valitsus.ee/main
Nimi | K.p. | Δ | Viit | Tüüp | Org | Osapooled |
---|---|---|---|---|---|---|
Eesti seisukohad reisidokumentide digitaliseerimise määruste paketi kohta | 01.12.2024 | 1 | 5-1/66-2 | Väljaminev kiri | sisemin | Riigikantselei istungiosakond |
PPA - Vastuskiri | 12.11.2024 | 1 | 5-1/67-3 | Sissetulev kiri | sisemin | Politsei- ja Piirivalveamet |
VV seisukohtade kujundamine - COM(2024) 670 ja COM(2024) 671 | 07.11.2024 | 1 | 5-1/67-2 | Sissetulev kiri | sisemin | Andmekaitse Inspektsioon |
Euroopa Komisjoni reisidokumentide digiteerimise määruste ettepanekute paketi esitamine arvamuse avaldamiseks | 18.10.2024 | 3 | 5-1/67-1 | Väljaminev kiri | sisemin | Justiitsministeerium, Majandus- ja Kommunikatsiooniministeerium, Välisministeerium, Rahandusministeerium, Kliimaministeerium, Andmekaitse Inspektsioon, Politsei- ja Piirivalveamet, Siseministeeriumi infotehnoloogia- ja arenduskeskus, Eesti Infotehnoloogia ja Telekommunikatsiooni Liit |