report parliamentary committee draft, 3 December 2025
On the proposal for a directive of the European Parliament and of the Council on the registration documents for vehicles and vehicle registration data recorded in national vehicle registers and repealing Council Directive 1999/37/EC
Document TRAN-PR-779822 · (COM(2025)0179 – C100073/2025 – 2025/0096(COD))
Committee on Transport and Tourism · Rapporteur: Johan Danielsson
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Draft european parliament legislative resolution 138 paragraphs
on the proposal for a directive of the European Parliament and of the Council on the registration documents for vehicles and vehicle registration data recorded in national vehicle registers and repealing Council Directive 1999/37/EC
(COM(2025)0179 – C100073/2025 – 2025/0096(COD))
(Ordinary legislative procedure: first reading)
The European Parliament,
–having regard to the Commission proposal to Parliament and the Council (COM(2025)0179),
–having regard to Article 294(2) and Article 91(1) of the Treaty on the Functioning of the European Union, pursuant to which the Commission submitted the proposal to Parliament (C100073/2025),
–having regard to Article 294(3) of the Treaty on the Functioning of the European Union,
–having regard to Rule 60 of its Rules of Procedure,
–having regard to the opinion of the Committee on the Internal Market and Consumer Protection,
–having regard to the report of the Committee on Transport and Tourism (A100000/2025),
1.Adopts its position at first reading hereinafter set out;
2.Calls on the Commission to refer the matter to Parliament again if it replaces, substantially amends or intends to substantially amend its proposal;
Read the rest (126 paragraphs)
3.Instructs its President to forward its position to the Council, the Commission and the national parliaments.
Amendment 1
Proposal for a directive
Recital 5
| Text proposed by the Commission | Amendment |
|---|---|
| (5) To take account of the need for digitalisation, to strengthen Union competitiveness and to reduce administrative burdens, both physical and mobile registration certificates should be harmonised. Such certificates should be fully equivalent and contain exactly the same information. | (5) To take account of the need for digitalisation, to strengthen Union competitiveness and to reduce administrative burdens, both physical and mobile registration certificates should be harmonised. Such certificates should be fully equivalent and contain exactly the same information. The transition in the format of vehicle registration documents should take account of the needs of citizens who could face barriers in using digital tools, and it should guarantee that they are not placed at a disadvantage when complying with administrative requirements. Member States should ensure that the transition to mobile registration certificates does not disadvantage citizens without adequate digital access or skills. |
Or. en
Amendment 2
Proposal for a directive
Recital 7
| Text proposed by the Commission | Amendment |
|---|---|
| (7) The digital transformation is one of the Union’s priorities. It is important to remove the remaining barriers, including the administrative burden associated with the re-registration of vehicles. This can impede the free movement of people, and their right to circulate freely within the Union and to take up residence in a Member State other than the one where their vehicle is currently registered. Therefore, as from [date of entry into force + 4 years], mobile registration certificates should be issued by default without affecting the applicant’s right to also request a physical registration certificate. To ensure interoperability of mobile registration certificates across the Union, technical specifications for those certificates should be set out. This will also make it possible to ensure vehicle registration certificates can be checked and verified. | (7) The digital transformation is one of the Union’s priorities. It is important to remove the remaining barriers, including the administrative burden associated with the re-registration of vehicles. This can impede the free movement of people, and their right to circulate freely within the Union and to take up residence in a Member State other than the one where their vehicle is currently registered. Therefore, as from [date of entry into force + 4 years], mobile registration certificates should be issued by default without affecting the applicant’s right to also request a physical registration certificate, recognising the importance of accessibility and digital inclusion for all members of society. To ensure interoperability of mobile registration certificates across the Union, technical specifications for those certificates should be set out. This will also make it possible to ensure vehicle registration certificates can be checked and verified. |
Or. en
Amendment 3
Proposal for a directive
Recital 9
| Text proposed by the Commission | Amendment |
|---|---|
| (9) To facilitate cross-border movements, in particular the re-registration of vehicles, Member States should electronically record all required data on all vehicles registered in their territory and keep that data up to date at all times. That data will help: improve the accuracy of vehicle registers; ensure better law enforcement; combat vehicle fraud and theft; improve the exchange of information between Member States; and facilitate checking the status of vehicles due for export. | (9) To facilitate cross-border movements, in particular the re-registration of vehicles, Member States should electronically record all required data on all vehicles registered in their territory and keep that data up to date at all times. That data will help: improve the accuracy of vehicle registers; ensure better law enforcement; combat vehicle fraud and theft to the benefit of Union citizens, leveraging technology and data exchange to target criminal activity and help in the fight against fraud and crime linked to the purchase and sale of vehicles; improve public health by identifying high-emitting vehicles; improve the exchange of information between Member States; and facilitate checking the status of vehicles due for export. |
Or. en
Amendment 4
Proposal for a directive
Recital 14
| Text proposed by the Commission | Amendment |
|---|---|
| (14) When re-registering a vehicle previously registered in another Member State, the competent authorities should, during a transitional period, require Part I of the physical registration certificate to be submitted. However, to facilitate free movement of people and to reduce the administrative burden, the competent authorities should also be allowed to accept the presentation of the mobile registration certificate during that period, if it was issued. After the transitional period, when re-registering a vehicle previously registered in another Member State, the competent authorities should accept both Part I of the physical registration certificate and the presentation of the mobile registration certificate. | (14) When re-registering a vehicle previously registered in another Member State, the competent authorities should, during a transitional period, require Part I of the physical registration certificate to be submitted. However, to facilitate free movement of people and to reduce the administrative burden, the competent authorities should also be allowed to accept the presentation of the mobile registration certificate during that period, if it was issued. After the transitional period, when re-registering a vehicle previously registered in another Member State, the competent authorities should accept both Part I of the physical registration certificate and the presentation of the mobile registration certificate. In order to ensure compliance with national safety and environmental standards in accordance with Regulations (EU) 2018/858, (EU) No 167/2013 and (EU) No 168/2013, Member States should be able to decide that mutual recognition does not apply to vehicles that have not been granted EU type-approval or EU individual approval. |
Or. en
Amendment 5
Proposal for a directive
Article 2 – paragraph 1 – point 7 a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (7a) 'cancellation of a registration' means the permanent cancellation of a Member State's authorisation for a vehicle to be used in road traffic. |
Or. en
Amendment 6
Proposal for a directive
Article 3 – paragraph 4
| Text proposed by the Commission | Amendment |
|---|---|
| 4. With effect from [entry into force + 4 years + 1 day], Member States shall only issue mobile registration certificates. However, upon request of the applicant, Member States shall also issue a physical registration certificate. | 4. With effect from [entry into force + 4 years + 1 day], Member States shall only issue mobile registration certificates. Upon request of the applicant, Member States shall also issue a physical registration certificate free of charge. Member States shall ensure that the procedures for obtaining a physical registration certificate are simple and user-friendly, and that applicants can fulfil their registration obligations effectively, regardless of their level of digital access. |
Or. en
Amendment 7
Proposal for a directive
Article 4 – paragraph 4
| Text proposed by the Commission | Amendment |
|---|---|
| 4. Member States may decide to print a QR code on the physical registration certificates in paper format which they issue. The QR code shall allow the verification of the authenticity of the information reported on the physical registration certificate. | 4. Member States shall include one or more QR codes on the physical registration certificates in paper format which they issue. The QR code shall allow the verification of the authenticity of the information reported on the physical registration certificate. |
Or. en
Amendment 8
Proposal for a directive
Article 5 – paragraph 4
| Text proposed by the Commission | Amendment |
|---|---|
| 4. By [entry into force + 2 years], the Commission shall adopt implementing acts laying down detailed provisions concerning the technical specifications of mobile registration certificates, including verification features and the interface with national systems, and procedures for notifying trusted issuers of mobile registration certificates. Those implementing acts shall be adopted in accordance with the examination procedure referred to in Article 14(2). | 4. By [entry into force + 2 years] at the latest, the Commission shall adopt implementing acts laying down detailed provisions concerning the technical specifications of mobile registration certificates, including verification features and the interface with national systems, and procedures for notifying trusted issuers of mobile registration certificates. Those implementing acts shall be adopted in accordance with the examination procedure referred to in Article 14(2). Mobile registration certificates for the purpose of this Directive shall only be issued once the Commission has adopted the relevant implementing acts. |
Or. en
Amendment 9
Proposal for a directive
Article 5 – paragraph 4 a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| 4a. In order to account for cases of limited connectivity or when one of the parties involved in a roadside or periodic technical inspection cannot retrieve the digital format, appropriate backup measures shall be established. |
Or. en
Amendment 10
Proposal for a directive
Article 6 – paragraph 1 – subparagraph 2 – point d
| Text proposed by the Commission | Amendment |
|---|---|
| (d) information on the previous holder and, where available, the previous owner of the vehicle; | (d) information on the previous holder and, where available, the previous owner of the vehicle, limited to data necessary for safety, or environmental protection purposes or for the prevention of fraud; |
Or. en
Amendment 11
Proposal for a directive
Article 6 – paragraph 1 – subparagraph 2 – point f
| Text proposed by the Commission | Amendment |
|---|---|
| (f) the country where the vehicle was registered for the first time; | (f) the country where the vehicle was registered for the first time, unless the vehicle is designated to be a vehicle of historic interest in accordance with Directive 2014/45/EU and the information is not known; |
Or. en
Amendment 12
Proposal for a directive
Article 7 – paragraph 1
| Text proposed by the Commission | Amendment |
|---|---|
| Member States shall ensure that the personal data necessary for the verification of the information reported on the physical registration certificate or mobile registration certificate are not retained by the verifier, unless retention is authorised by Union or national law. They shall also ensure that the issuing authority of the registration certificate is not notified about the verification process of physical vehicle registration certificates, and that it processes the information received through the notification only for the purpose of responding to the verification request for mobile vehicle registration certificates. | Member States shall ensure that the personal data necessary for the verification of the information reported on the physical registration certificate or mobile registration certificate are not retained by the verifier, unless retention is authorised under Regulation (EU) 2016/679 of the European Parliament and of the Council. They shall also ensure that the issuing authority of the registration certificate is not notified about the verification process of physical vehicle registration certificates, and that it processes the information received through the notification only for the purpose of responding to the verification request for mobile vehicle registration certificates. |
Or. en
Amendment 13
Proposal for a directive
Article 8 – title (new)
| Text proposed by the Commission | Amendment |
|---|---|
| Suspension of registration |
Or. en
Amendment 14
Proposal for a directive
Article 9 – paragraph 1
| Text proposed by the Commission | Amendment |
|---|---|
| 1. A physical registration certificate issued by a Member State in accordance with Article 4 shall be recognised by the other Member States for the identification of the vehicle in international traffic or for its re-registration in another Member State. | 1. A physical registration certificate issued by a Member State in accordance with Article 4 shall be recognised by the other Member States for the identification of the vehicle in international traffic or for its re-registration in another Member State, provided that the approval is recognised by the Member State of re-registration in accordance with Regulation (EU) 2018/858 of the European Parliament and of the Council. |
Or. en
Amendment 15
Proposal for a directive
Article 9 – paragraph 2 a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| 2a. Without prejudice to paragraphs 1 and 2 concerning the recognition by the other Member States for the identification of the vehicle in international traffic, Member States may decide not to recognise registration certificates for the purpose of re-registration of vehicles which have not been granted an EU type approval in accordance with Regulation (EU) 2018/858, Regulation (EU) No 167/2013 or Regulation (EU) No 168/2013, or granted an EU individual approval in accordance with Regulation (EU) 2018/858. |
Or. en
Amendment 16
Proposal for a directive
Article 15 – paragraph 1 – subparagraph 1
| Text proposed by the Commission | Amendment |
|---|---|
| Member States shall assist one another in the implementation of this Directive. They shall exchange information relating to vehicle registration data, data on the last roadworthiness certificate, any technical roadside inspection report, and the odometer history of the vehicle stored in national databases, in particular so as to check, before any registration of a vehicle, that vehicle's legal status, where necessary in the Member State in which it was previously registered. | Member States shall assist one another in the implementation of this Directive. They shall exchange information relating to vehicle registration data, data on the last roadworthiness certificate, any technical roadside inspection report, remote sensing data, and the odometer history of the vehicle stored in national databases, in particular so as to check, before any registration of a vehicle, that vehicle's legal status, where necessary in the Member State in which it was previously registered. |
Or. en
Amendment 17
Proposal for a directive
Article 15 – paragraph 3
| Text proposed by the Commission | Amendment |
|---|---|
| 3. Access to the MOVE-HUB network shall be secured. Member States may connect only the authorities competent for the purposes referred to in paragraphs 1. | 3. Access to, and transmission through the MOVE-HUB network shall be secured. Member States may connect only the authorities competent for the purposes referred to in paragraphs 1. |
Or. en
Amendment 18
Proposal for a directive
Article 15 – paragraph 4
| Text proposed by the Commission | Amendment |
|---|---|
| 4. By [date of entry into force + 2 years], the Commission shall adopt implementing acts laying down the necessary arrangements for the implementation of the functionalities of the electronic system referred to in paragraph 2, and specifying the minimum requirements for the format and content of the message to be used by Member States. It shall specify which authority is responsible for access to data and further use. Those implementing acts shall be adopted in accordance with the examination procedure referred to in Article 14(2). | 4. By [date of entry into force + 2 years], the Commission shall adopt implementing acts laying down the necessary arrangements for the implementation of the functionalities of the electronic system referred to in paragraph 2, and specifying the minimum requirements for the format and content of the message to be used by Member States. It shall specify which authority is responsible for access to data and further use. Those implementing acts shall be in accordance with rules on the protection of personal data and be adopted in accordance with the examination procedure referred to in Article 14(2). |
Or. en
Amendment 19
Proposal for a directive
Article 16 – paragraph 1 – subparagraph 1 – point d a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (da) number of vehicles de-registered pursuant to Article 6(1), point (i); |
Or. en
Amendment 20
Proposal for a directive
Article 17 – paragraph 1 – subparagraph 1
| Text proposed by the Commission | Amendment |
|---|---|
| Member States shall bring into force the laws, regulations and administrative provisions necessary to comply with this Directive by [date-of-entry into force + 2 years] at the latest. They shall forthwith communicate to the Commission the text of those provisions. | Member States shall bring into force the laws, regulations and administrative provisions necessary to comply with this Directive by [date-of-entry into force + 2 years] at the latest. Member States shallt have six months from the adoption of the implementing acts laid down in Article 15 (4) to adapt their systems. They shall forthwith communicate to the Commission the text of those provisions. |
Or. en
Amendment 21
Proposal for a directive
Annex I – point 2 – point f – point V.1
| Text proposed by the Commission | Amendment |
|---|---|
| (V.1) CO (in g/km or g/kWh), | (V.1) CO (in mg/km or mg/kWh), |
Or. en
Amendment 22
Proposal for a directive
Annex I – point 2 – point f – point V.2
| Text proposed by the Commission | Amendment |
|---|---|
| (V.2) THC (in g/km or g/kWh), | (V.2) THC (in mg/km or mg/kWh), |
Or. en
Amendment 23
Proposal for a directive
Annex I – point 2 – point f – point V.3
| Text proposed by the Commission | Amendment |
|---|---|
| (V.3) NOx (in g/km or g/kWh), | (V.3) NOx (in mg/km or mg/kWh), |
Or. en
Amendment 24
Proposal for a directive
Annex I – point 2 – point f – point V.4
| Text proposed by the Commission | Amendment |
|---|---|
| (V.4) THC + NOx (in g/km), | (V.4) THC + NOx (in mg/km), |
Or. en
Amendment 25
Proposal for a directive
Annex I – point 2 – point f – point V.5
| Text proposed by the Commission | Amendment |
|---|---|
| (V.5) Mass of particulate matter (PM) (in g/km or g/kWh), | (V.5) Mass of particulate matter (PM) (in mg/km or mg/kWh), |
Or. en
Explanatory statement 6 paragraphs
The Rapporteur strongly welcomes the European Commission’s proposal, which effectively leverages digitalisation and new technologies to the benefit of EU citizens. The proposed measures represent simple, cost-effective steps that can deliver tangible reductions in unnecessary administrative burdens while strengthening consumer protection and combating fraud and crime that impose extra costs on vehicle owners and endanger road safety across the Union.
In particular, the Rapporteur highlights the significant potential of the transition towards mobile vehicle registration documents to reduce administrative burdens for citizens. The introduction of QR codes for registration documents will enable the use of the latest technological solutions, providing citizens with secure and immediate access to vehicle information. Access to a digital version of a key document for drivers will help reduce paperwork and facilitate cross-border travel for EU citizens when taking their vehicles abroad.
The Rapporteur stresses, however, that the digital transition for vehicle registration documents must be accompanied by strong safeguards to protect and support citizens with limited digital access or digital skills. A physical version of the registration document should therefore always remain available upon request and should be provided free of charge. It is essential that citizens who may face barriers to using digital tools are not placed at a disadvantage when fulfilling administrative obligations.
Real-time data exchange between Member States will also play a vital role in fighting vehicle crime and fraud and in strengthening consumer protection, particularly in the purchase of second-hand vehicles. The exchange of lifetime mileage data is a simple but essential measure to prevent criminal manipulation of odometers. According to one study, up to 50% of second-hand cars traded within the EU have had their odometers tampered with, causing consumers to overpay for vehicles that appear less used than they are in reality and to underestimate the maintenance needs and associated costs of vehicles with significantly higher actual mileage.
The Rapporteur also identifies an opportunity to further leverage innovation and data exchange to protect public health. For this reason, the Rapporteur proposes including Remote Emission Sensing (RES) data in the scope of data exchanged between Member States. The inclusion of RES in the revisions of the Directives on periodic roadworthiness tests and on technical roadside inspections is a cost-effective measure to reduce the harmful impact of high-emitting vehicles on air quality and noise pollution. Estimates indicate that although high-emitting vehicles represent only around 1.5% of the EU fleet, they may be responsible for up to 40% of total emissions. The health of EU citizens should not be jeopardised by vehicle manipulation, improper maintenance, or tampering, particularly when simple and affordable technological solutions are available. Extending the scope to include RES data will support the timely identification of high-emitting vehicles, which according to the proposal need to be detected three times within a six-month period, and thereby enable appropriate follow-up to verify and address excessive emissions.
The Rapporteur therefore supports a forward-looking approach that enhances administrative efficiency, strengthens consumer protection, and supports environmental and public health objectives, while ensuring that the transition to digital tools remains fully inclusive and accessible for all citizens.