Legal provisions of COM(2022)703 - Amendment of Regulation (EU) No 904/2010 as regards the VAT administrative cooperation arrangements needed for the digital age

Please note

This page contains a limited version of this dossier in the EU Monitor.

dossier COM(2022)703 - Amendment of Regulation (EU) No 904/2010 as regards the VAT administrative cooperation arrangements needed for the digital ...
document COM(2022)703 EN
date March 11, 2025


Article 1

Amendment to Regulation (EU) No 904/2010 applicable from the entry into force of this Regulation

In Article 17(1) of Regulation (EU) No 904/2010, point (e) is replaced by the following:

‘(e)data on the VAT identification numbers referred to in Article 369q of Directive 2006/112/EC it has issued and, per VAT identification number issued by any Member State, the total value of the imports of goods exempted under Article 143(1), point (ca), of that Directive during each month, per Member State of consumption as defined in Article 369l, second paragraph, point (4), of that Directive;’.

Article 2

Amendments to Regulation (EU) No 904/2010 applicable from 1 July 2028

Regulation (EU) No 904/2010 is amended as follows:

(1)in Article 1, paragraph 4 is replaced by the following:

‘4.   This Regulation also lays down rules and procedures for the exchange by electronic means of VAT information on goods and services supplied or goods transferred in accordance with the special schemes provided for in Title XII, Chapter 6, of Directive 2006/112/EC and also for any subsequent exchange of information and, as far as goods and services covered by the special schemes are concerned, for the transfer of money between Member States’ competent authorities.’

;

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

‘2.   The definitions contained in Articles 358, 358a, 369a, 369l and 369xa of Directive 2006/112/EC for the purposes of each special scheme shall also apply for the purposes of this Regulation.’

;

(3)in Article 17(1), point (d) is replaced by the following:

‘(d)information which it collects pursuant to Articles 360, 361, 364, 365, 369c, 369f, 369g, 369o, 369p, 369s, 369t, 369xc, 369xf and 369xg of Directive 2006/112/EC;’

;

(4)Article 47b is replaced by the following:

‘Article 47b

1. Member States shall provide that taxable persons making use of the special scheme laid down in Title XII, Chapter 6, Section 2, of Directive 2006/112/EC are to provide to the Member State of identification, by electronic means, the information laid down in Article 361 of that Directive.

Taxable persons making use of the special schemes laid down in Title XII, Chapter 6, Sections 3 and 5, of Directive 2006/112/EC shall provide to the Member State of identification, by electronic means, details for their identification when their activities commence pursuant to Articles 369c and 369xc of that Directive.

Taxable persons shall also submit any changes in the information provided pursuant to Article 361(2), Article 369c and Article 369xc of Directive 2006/112/EC by electronic means.

2. The Member State of identification shall transmit the information referred to in paragraph 1 of this Article by electronic means to the competent authorities of the other Member States within 10 days from the end of the month in which the information was received from the taxable person making use of one of the special schemes laid down in Title XII, Chapter 6, Sections 2, 3 and 5, of Directive 2006/112/EC. The Member State of identification shall in the same manner inform the competent authorities of the other Member States of the VAT identification numbers referred to in those Sections.

3. Where a taxable person making use of one of the special schemes laid down in Title XII, Chapter 6, Sections 2, 3 and 5, of Directive 2006/112/EC is excluded from that special scheme, the Member State of identification shall inform the competent authorities of the other Member States thereof by electronic means and without delay.’

;

(5)Article 47d is replaced by the following:

‘Article 47d

1. Member States shall provide that the VAT return with the details set out in Articles 365, 369g, 369t and 369xg of Directive 2006/112/EC is to be submitted by electronic means.

2. The Member State of identification shall transmit the information referred to in paragraph 1 of this Article by electronic means to the competent authority of the Member State of consumption, or the competent authorities of the Member States from and to which the goods were dispatched or transported, after the date on which the VAT return was required to be submitted in accordance with Directive 2006/112/EC but not later than 20 days after the end of the month during which the VAT return was required to be submitted.

The Member State of identification shall also transmit the information provided for in Article 369g(2) of Directive 2006/112/EC to the competent authority of each other Member State from which goods are dispatched or transported and the information provided for in Article 369g(3) of Directive 2006/112/EC to the competent authority of each Member State of establishment concerned.

Member States which have required that the VAT return be made in a national currency other than euro shall convert the amounts into euro using the exchange rate valid for the last day of the tax period. The exchange shall be done following the exchange rates published by the European Central Bank for that day, or, if there is no publication on that day, on the next day of publication.’

;

(6)in Article 47h, the following paragraph is added:

‘For the purposes of the first paragraph of this Article, Member States shall grant competent authorities access to the information referred to in Article 369p(1) and (3) of Directive 2006/112/EC.’

;

(7)Article 47i is amended as follows:

(a)paragraph 1 is replaced by the following:

‘1.   To obtain the records held by a taxable person or intermediary pursuant to Articles 369, 369k, 369x and 369xk of Directive 2006/112/EC, the Member State of consumption or the Member State from or to which the goods have been dispatched or transported shall first make a request to the Member State of identification by electronic means.’

;

(b)paragraphs 4 and 5 are replaced by the following:

‘4.   The Member State of identification shall transmit the records obtained by electronic means without delay to the requesting Member State of consumption or the Member State from or to which the goods have been dispatched or transported.

5. Where the requesting Member State of consumption or the Member State from or to which the goods have been dispatched or transported does not receive the records within 30 days of the date of the making of the request, that Member State may take any action in accordance with its national legislation to obtain such records.’

;

(8)the following article is inserted:

‘Article 47ia

The Commission shall, in the framework of a revision of Regulation (EU) No 904/2010, assess the possibility of enabling between Member States automated access to records provided to the Member State of identification by taxable persons registered in any of the special schemes laid down in Title XII, Chapter 6, of Directive 2006/112/EC.’

;

(9)in Article 47j(2), the first subparagraph is replaced by the following:

‘Without prejudice to Article 7(4), if the Member State of consumption or the Member State from or to which the goods have been dispatched or transported decides that an administrative enquiry is required, it shall first consult with the Member State of identification on the need for such an enquiry.’

;

(10)the following chapter is inserted:

‘CHAPTER XIa

Provisions concerning record-keeping obligations for taxable persons facilitating supplies of goods or services through the use of electronic interfaces in accordance with Article 242a of Directive 2006/112/EC

Article 47m

1. To obtain the records held by a taxable person pursuant to Article 242a of Directive 2006/112/EC and without prejudice to paragraph 2, second subparagraph, of that Article, the Member State in which the supplies referred to in that Article are taxable shall first make a request by electronic means to a Member State in which the taxable person is identified for VAT purposes.

2. Where a Member State in which a taxable person is identified for VAT purposes receives a request as referred to in paragraph 1, that Member State shall transmit the request by electronic means and without delay to the taxable person.

3. Member States shall provide that, upon request, a taxable person is to submit the requested records by electronic means to the Member State in which that taxable person is identified for VAT purposes and which has transmitted the request. Member States shall allow the records to be submitted using a standard form.

4. The Member State in which a taxable person is identified for VAT purposes and which has transmitted the request shall transmit the records obtained pursuant to paragraph 3 of this Article by electronic means and without delay to the requesting Member State in which the supplies referred to in Article 242a of Directive 2006/112/EC are taxable.

5. Where the requesting Member State in which the supplies referred to in Article 242a of Directive 2006/112/EC are taxable does not receive the records within 30 days of the date of the making of the request, that Member State may take any action in accordance with its national legislation to obtain such records.

Article 47n

The Commission shall specify the following by means of implementing acts:

(a)the technical details for the standard form referred to in Article 47m(3);

(b)the technical details, including a common electronic message, for providing the information referred to in Article 47m(1), (2) and (4) as well as the technical means for the transmission of that information.

Those implementing acts shall be adopted in accordance with the examination procedure referred to in Article 58(2).

Article 47o

The Commission shall, in the framework of a revision of Regulation (EU) No 904/2010, assess the possibility of enabling between Member States automated access to data provided to the Member State of establishment by platforms in the framework of their record-keeping obligations.’.

Article 3

Amendment to Regulation (EU) No 904/2010 applicable from 1 July 2029

Article 21(2) of Regulation (EU) No 904/2010 is amended as follows:

(1)point (c) is replaced by the following:

‘(c)the VAT identification numbers of the persons who carried out the supplies of goods and services referred to in point (b);’

;

(2)in point (e), the introductory wording is replaced by the following:

‘the total value of the supplies of goods and services referred to in point (b) from each person referred to in point (c) to each person holding a VAT identification number issued by another Member State under the following conditions:’.

Article 4

Amendments to Regulation (EU) No 904/2010 applicable from 1 July 2030

Regulation (EU) No 904/2010 is amended as follows:

(1)in Article 2(1), points (g) and (h) are replaced by the following:

‘(g)“intra-Community supply of goods” means any supply of goods in relation to which data are to be submitted in accordance with Article 262 of Directive 2006/112/EC;

(h)“intra-Community supply of services” means any supply of services in relation to which data are to be submitted in accordance with Article 262 of Directive 2006/112/EC;’

;

(2)in Article 17(1), point (a) is replaced by the following:

‘(a)information which it collects pursuant to Title XI, Chapter 6, of Directive 2006/112/EC as amended by Council Directive (EU) 2022/890 (*1);

(*1)  Council Directive (EU) 2022/890 of 3 June 2022 amending Directive 2006/112/EC as regards the extension of the application period of the optional reverse charge mechanism in relation to supplies of certain goods and services susceptible to fraud and of the Quick Reaction Mechanism against VAT fraud (OJ L 155, 8.6.2022, p. 1, ELI: http://data.europa.eu/eli/dir/2022/890/oj).’;"

(3)in Chapter V, the following section is added:

‘SECTION 3

ELECTRONIC CENTRAL VAT INFORMATION EXCHANGE SYSTEM

Article 24g

1. The Commission shall develop, maintain, host and technically manage an electronic central VAT information exchange system (“central VIES”) for the purposes referred to in Article 1.

2. Each Member State shall develop, maintain, host and technically manage a national electronic system to automatically transmit the following information to the central VIES:

(a)information which it collects pursuant to Title XI, Chapter 6, Section 1, of Directive 2006/112/EC;

(b)information on the identity, activity, legal form and address of persons to whom it has issued a VAT identification number, collected pursuant to Article 213 of Directive 2006/112/EC, the date on which that number was issued and other VAT identification numbers issued to those persons;

(c)the VAT identification numbers issued by the Member State which have become invalid and the dates on which those numbers became invalid; and

(d)the date on which and the time at which the data referred to in points (a), (b) and (c) were modified.

The information referred to in point (a) of the first subparagraph of this paragraph shall be in conformity with the European standard on electronic invoicing and the list of its syntaxes as set out in Directive 2014/55/EU of the European Parliament and of the Council (*2).

The Commission shall specify by means of an implementing act the details and the format of the information listed in the first subparagraph of this paragraph. That implementing act shall be adopted in accordance with the examination procedure referred to in Article 58(2).

3. Each Member State may store the information referred to in Article 24j, points (a) to (d), subject to the access permissions referred to in Article 24k(3), point (b), in the national electronic system referred to in paragraph 2 of this Article in accordance with its national legislation.

Article 24h

1. Member States shall ensure that the information available in the central VIES is kept up to date, complete and accurate.

The Commission shall by means of an implementing act establish the criteria to determine which changes are not pertinent, essential or useful enough to be transmitted to the central VIES. That implementing act shall be adopted in accordance with the examination procedure referred to in Article 58(2).

2. Member States shall adopt the measures necessary to ensure that, in their assessment, the data provided by taxable persons and non-taxable legal persons for their identification for VAT purposes in accordance with Article 214 of Directive 2006/112/EC are complete and accurate before such data are transmitted to the central VIES.

Member States shall implement procedures for checking the data referred to in the first subparagraph as determined by the results of their risk assessment. The checks shall be carried out, in principle, prior to identification for VAT purposes or, where only preliminary checks are conducted before such identification, no later than 6 months after such identification.

3. Member States shall inform the Commission and other Member States of the measures implemented at national level to ensure the quality and reliability of the information pursuant to paragraph 2.

4. Member States shall automatically transmit the information referred to in Article 24g(2) to the central VIES without delay.

The Commission shall define in an implementing act the details on the acceptable technical delays. That implementing act shall be adopted in accordance with the examination procedure referred to in Article 58(2).

5. By way of derogation from paragraph 4 of this Article, Member States shall automatically transmit the information referred to in Article 24g(2), point (a), to the central VIES no later than one day after the collection of the information submitted by the taxable person to the competent authorities.

6. The information referred to in Article 24g(2) shall be available in the central VIES for 10 years from the end of the year in which the information was transmitted to it.

Article 24i

1. Member States shall automatically update the central VIES to ensure that the VAT identification number, as referred to in Article 214 of Directive 2006/112/EC, is shown as invalid in the central VIES in the following situations:

(a)where persons identified for VAT purposes have stated that their economic activity, as referred to in Article 9 of Directive 2006/112/EC, has ceased or where the competent authority considers that those persons have ceased such activity;

(b)where persons have declared false data in order to obtain VAT identification and, if the tax administration had known, it would have refused identification for VAT purposes or withdrawn the VAT identification number;

(c)where persons have failed to communicate changes to their data and, if the tax administration had known, it would have refused identification for VAT purposes or withdrawn the VAT identification number.

For the purposes of the first subparagraph, point (a), the persons concerned shall have the right to prove the existence of an economic activity by other means.

The situations listed in the first subparagraph are without prejudice to any national rules providing for additional situations.

2. For the purposes of paragraph 1, first subparagraph, point (a), the competent authority shall consider an economic activity to be ceased in at least the following situations:

(a)despite being required to do so, the person identified for VAT purposes has failed to submit VAT returns for 1 year after the expiry of the deadline for submitting the first VAT return that was missed;

(b)despite being required to do so, the person identified for VAT purposes has failed to submit any data on the intra-Community supply of goods or services for 6 months after the expiry of the deadline for submitting the data for the first transaction that was missed.

The situations listed in the first subparagraph are without prejudice to any national rules providing for additional situations.

Article 24j

The central VIES shall have the following functions with regard to information received pursuant to Article 24g(2):

(a)to store the information referred to in points (b), (c) and (d) of this paragraph and in Article 24g(2);

(b)to cross-check the information collected pursuant to Title XI, Chapter 6, Section 1, of Directive 2006/112/EC, and make the result of that cross-check available to Member States which require taxable persons to submit data referred to in Article 264 of that Directive in respect of transactions listed in Article 262(1), points (b) and (d), of that Directive;

(c)to aggregate information collected pursuant to Article 213 of Directive 2006/112/EC in respect of persons to whom a VAT identification number was issued and to make the following details accessible to the officials or electronic systems referred to in Article 24k of this Regulation:

(i)the total value of all intra-Community supplies of goods and the total value of all intra-Community supplies of services to persons holding a VAT identification number issued by a Member State by all operators identified for the purposes of VAT in each other Member State;

(ii)the VAT identification numbers of the persons who carried out the supplies of goods and services referred to in point (i);

(iii)the total value of the supplies of goods and services referred to in point (i) from each person referred to in point (ii) to each person holding a VAT identification number issued by a Member State; and

(iv)the total value of the supplies of goods and services referred to in point (i) from each person referred to in point (ii) to each person holding a VAT identification number issued by another Member State;

(d)to process information, together with any information communicated or collected pursuant to this Regulation;

(e)to make the information referred to in Article 24g(2) and in points (b), (c) and (d) of this paragraph accessible to the officials or electronic systems referred to in Article 24k according to access permissions referred to in Article 24k(3), point (b);

(f)to provide confirmation of the validity of the VAT identification number of any specified person as well as the associated name and address; and

(g)a log system to track the time of access and information accessed by officials or electronic systems referred to in Article 24k.

Article 24k

1. Each Member State shall grant automated access to the central VIES in accordance with the access permissions referred to in paragraph 3, point (b), to:

(a)officials who are authorised by the competent authority of that Member State to directly access information in the central VIES;

(b)Eurofisc liaison officials, as referred to in Article 36(1), who hold a personal user identification for the central VIES and where that access is in connection with an investigation into suspected VAT fraud or is to detect VAT fraud;

(c)officials who are authorised by the competent authority of that Member State that check the requirements provided for in Article 143(2) of Directive 2006/112/EC.

2. Each Member State shall grant automated access to the central VIES in accordance with the access permissions referred to in paragraph 3, point (b), to:

(a)national electronic systems of that Member State that check the requirements provided for in Article 143(2) of Directive 2006/112/EC;

(b)national electronic systems, as referred to in Article 24g(2), for the purposes referred to in Article 1(1), second subparagraph;

(c)CESOP referred to in Article 24a;

(d)the electronic systems carrying out swift exchange, processing and analysis of targeted information on cross-border fraud by Eurofisc.

3. The Commission shall specify by means of an implementing act the following:

(a)the practical arrangements for the identification of the officials and electronic systems referred to in paragraphs 1 and 2;

(b)the technical details concerning the access and detailed access permissions of the officials and electronic systems referred to in paragraphs 1 and 2 of this Article to the information referred to in Article 24j, points (a) to (g), and the detailed data in the central VIES to which access is to be granted.

That implementing act shall be adopted in accordance with the examination procedure referred to in Article 58(2).

Article 24l

1. The costs of establishing, operating and maintaining the central VIES shall be borne by the general budget of the Union. Those costs shall include the costs of the secure connection between the central VIES and the national electronic systems referred to in Article 24g(2), and the costs of the services necessary to carry out the functions listed in Article 24j.

2. Each Member State shall bear the costs of and shall be responsible for all developments to its national electronic system as referred to in Article 24g(2) necessary to permit the exchange of information using the Common Communications Network (CCN) or any other similar secure network.

Article 24m

The Commission shall specify by means of implementing acts the following:

(a)the tasks to be carried out by the Commission for the development, maintenance, hosting and technical management of the central VIES;

(b)the roles and responsibilities of Member States as controllers and of the Commission as processor under Regulation (EU) 2016/679 and Regulation (EU) 2018/1725.

Those implementing acts shall be adopted in accordance with the examination procedure referred to in Article 58(2).

(*2)  Directive 2014/55/EU of the European Parliament and of the Council of 16 April 2014 on electronic invoicing in public procurement (OJ L 133, 6.5.2014, p. 1, ELI: http://data.europa.eu/eli/dir/2014/55/oj).’."

Article 5

Amendments to Regulation (EU) No 904/2010 applicable from 1 July 2032

Regulation (EU) No 904/2010 is amended as follows:

(1)in Article 17(1), points (a), (b) and (c) are deleted;

(2)Article 20 is amended as follows:

(a)paragraph 2 is deleted;

(b)paragraph 3 is replaced by the following:

‘3.   By way of derogation from paragraph 1 of this Article, where information is to be corrected in, or added to, the electronic system pursuant to Article 19, the information shall be entered no later than 1 month after the period in which it was collected.’

;

(3)Article 21 is amended as follows:

(a)paragraphs 1a and 2 are deleted;

(b)paragraph 3 is replaced by the following:

‘3.   The Commission shall determine by means of implementing acts the practical arrangements as regards the conditions provided for in paragraph 2a, point (d), of this Article in order to enable the Member State providing the information to identify the Eurofisc liaison official accessing the information. Those implementing acts shall be adopted in accordance with the examination procedure referred to in Article 58(2).’

;

(4)Articles 22 and 23 are deleted;

(5)in Article 31, paragraph 1 is replaced by the following:

‘1.   The competent authorities of each Member State shall ensure that persons involved in the intra-Community supply of goods or services and non-established taxable persons supplying services are allowed to obtain, for the purposes of such transactions, confirmation by electronic means of the validity of the VAT identification number of any specified person as well as the associated name and address. That information shall correspond to the data referred to in Article 24g(2).’.

Article 6

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

Article 1 shall apply from the entry into force of this Regulation.

Article 2 shall apply from 1 July 2028.

Article 3 shall apply from 1 July 2029.

Article 4 shall apply from 1 July 2030.

Article 5 shall apply from 1 July 2032.

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