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eIDAS - Qualified electronic ledgers

Commission Implementing Regulation (EU) 2025/2531 establishes detailed rules under Regulation (EU) No 910/2014. This regulation aims to ensure consistent standards across EU Member States, enhancing trust and interoperability within the European Digital Identity ecosystem.

An electronic edition of the same is available here.

Article 1: Reference standards and specifications​

The reference standards and specifications referred to in Article 45l(3) of Regulation (EU) No 910/2014 are set out, for qualified electronic ledgers, in the Annex to this Regulation.

Article 2: 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.

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

Done at Brussels, 16 December 2025.

For the Commission

The President

Ursula VON DER LEYEN

ANNEX - List of technical specifications and reference standards for qualified distributed electronic ledgers​

1. Definitions​

For the purposes of this Regulation, the following definitions apply:

(a) 'finality' means the state of a data record of an electronic ledger wherein it has become irreversible and cannot be modified or removed;

(b) 'distributed electronic ledger' means an electronic ledger that is shared across a set of distributed electronic ledger nodes and which is synchronized between the distributed electronic ledger nodes using a consensus mechanism;

(c) 'distributed electronic ledger node' means a device or process that is part of a distributed electronic ledger network and stores a complete or partial copy of the data records of an electronic ledger;

(d) 'distributed electronic ledger network' means a network of distributed electronic ledger nodes which makes up a distributed electronic ledger system;

(e) 'distributed electronic ledger system' means a system that implements a distributed electronic ledger;

(f) 'consensus' means an agreement among distributed electronic ledger nodes on the validity of transactions and the maintenance of a consistent and ordered set of validated transactions across the distributed electronic ledger system;

(g) 'consensus mechanism' means the set of rules and procedures by which consensus is reached;

(h) 'governing rules' means the set of protocols, policies, and mechanisms that dictates how the distributed electronic ledger system operates, how data is validated and added to an electronic ledger, and how participants interact with the distributed electronic ledger system;

(i) 'smart contract' means a computer programme stored in a distributed electronic ledger system wherein the outcome of the execution of the programme is recorded in the distributed electronic ledger;

(j) 'data records' means data, including but not limited to data transactions, control transactions, status transactions or smart contracts, recorded in an electronic ledger;

(k) 'originator' means a natural or legal person, or any other entity, which is the source of a data record, and which may be a user of the qualified electronic ledger service;

(l) 'transactions' means a group of actions that write a data record, a set of data records or a modification of a data record to the electronic ledger;

(m) 'ledger report' means a statement produced as a result of the evaluation of data records in an electronic ledger according to predefined rules, which provides insights into specific activities, states, or compliance with predefined rules;

(n) 'provider of qualified electronic ledger' means a qualified trust service provider that provides a qualified trust service consisting in the recording of data in a qualified electronic ledger.

(o) 'qualified distributed electronic ledger' means a distributed electronic ledger that meets the requirements of a qualified electronic ledger.

2. Ledger reports​

Where the qualified trust service provider needs to produce a ledger report, it shall be produced in an automated manner.

3. Technical specifications and reference standards​

Providers of qualified electronic ledgers shall create, record electronic data in, update and maintain a qualified electronic ledger in accordance with the specifications established in:

(a) For all providers of qualified electronic ledgers, ETSI EN 319 401 v3.1.1 (2024-06) with the following adaptations:

(1) 2.1 Normative references:

  • [1] European Cybersecurity Certification Group, Sub-group on Cryptography: "Agreed Cryptographic Mechanisms" published by the European Union Agency for Cybersecurity ("ENISA").

  • [2] IETF RFC 7515 (May 2015): "JSON Web Signature (JWS)".

  • [3] FIPS PUB 140-3 (2019) "Security Requirements for Cryptographic Modules".

  • [4] Commission Implementing Regulation (EU) 2024/482 of 31 January 2024 laying down rules for the application of Regulation (EU) 2019/881 of the European Parliament and of the Council as regards the adoption of the European Common Criteria-based cybersecurity certification scheme (EUCC).

  • [5] Commission Implementing Regulation (EU) 2024/3144 of 18 December 2024 amending Implementing Regulation (EU) 2024/482 as regards applicable international standards and correcting that Implementing Regulation.

  • [6] ISO/IEC 15408:2022 (parts 1 to 5): "Information security, cybersecurity and privacy protection -- Evaluation criteria for IT security".

    (2) 6.1 Trust service practice statement:

  • REQ-6.1-12 The electronic ledger practice statement shall include at least the following information:

    • the functional and technical capabilities of the electronic ledger platform and its use throughout the provision of the recording of data in a qualified electronic ledger as a qualified trust service;
    • the specific data origin authentication mechanisms used when providing the service;
    • the specific sequential chronological ordering mechanisms used when providing the service;
    • where applicable, the cryptographic link used to ensure the sequence of data records;
    • where applicable, the consensus mechanism ensuring finality and integrity of data records and transactions stored in the ledger, including any cautionary time until finality and integrity are achieved;
    • the specific data integrity mechanisms used when providing the service.

    (3) 6.2 Terms and conditions:

  • REQ-6.2-03 Subscribers and parties relying on the trust service shall be informed, in a clear, comprehensive and easily accessible manner, in a publicly accessible space and individually, of precise terms and conditions, including the items listed above, before entering into a contractual relationship.

    (4) 6.3 Information security policy:

  • REQ-6.3-04X The TSP shall establish procedures to notify any changes in the provision of the trust service to the supervisory body, in accordance with business requirements and relevant laws and regulations. The TSP shall notify the supervisory body at least:

    • one month before implementing any planned change that may significantly affect the provision of the trust service,
    • and no later than 24 hours after becoming aware of any unplanned change that significantly affects the provision of the trust service.

    (5) 7.2 Asset management:

  • REQ-7.2-04X An electronic ledger practice statement according to the requirements of clause 6.1 of this document shall be maintained.

  • REQ-7.2-05X The electronic ledger practice statement shall be approved by the TSP's management and published.

    (6) 7.5 Cryptographic controls:

  • REQ-7.5-01X The TSP shall establish procedures to manage cryptographic keys, cryptographic algorithms, and cryptographic devices throughout their lifecycle, following, where appropriate, a cryptographic agility approach.

  • REQ-7.5-02 For the purpose of the provision of its trust services, the TSP shall select and use suitable cryptographic techniques compliant with the Agreed Cryptographic Mechanisms endorsed by the European Cybersecurity Certification Group and published by ENISA [1].

    In particular:

  • REQ-7.5-03 Providers of qualified electronic ledgers shall establish the origin of data records in the electronic ledger. To this extent, they shall use advanced electronic signatures based on qualified certificates or advanced electronic seals based on qualified certificates created by the users of the service in accordance with the following standards and specifications:

    • (a) ETSI EN 319 122-1 V1.3.1 (2023-06). Electronic Signatures and Infrastructures (ESI); CAdES digital signatures; Part 1: Building blocks and CAdES baseline signatures.
    • (b) ETSI EN 319 132-1 V1.3.1 (2024-07). Electronic Signatures and Trust Infrastructures (ESI); XAdES digital signatures; Part 1: Building blocks and XAdES baseline signatures.
    • (c) ETSI TS 119 182-1 V1.2.1 (2024-07). Electronic Signatures and Trust Infrastructures (ESI); JAdES digital signatures; Part 1: Building blocks and JAdES baseline signatures, with the following adaptation:
      • 5.1.8 The x5c (X.509 Certificate Chain) header parameter
      • The x5c header parameter as defined in clause 4.1.6 of IETF RFC 7515 [2] shall be present in the JAdES signature, either as a signed or unsigned header parameter.
      • The x5c header parameter shall have the semantics specified in IETF RFC 7515 [2], clause 4.1.6.
      • The x5c header parameter shall have the syntax specified in IETF RFC 7515 [2], clause 4.1.6.

  • REQ-7.5-04 Providers of qualified electronic ledgers shall ensure the unique sequential chronological ordering of data records in the electronic ledger. To this extent, they shall use cryptographic links, based in hash lists or hash trees, using cryptographic hash functions, in accordance with the following specifications and standards:

    • (a) SHA-256 or higher output hash size, in compliance with the "Agreed Cryptographic Mechanisms" endorsed by the European Cybersecurity Certification Group and published by ENISA [1].
    • (b) SHA-512/256 or higher output hash size, in compliance with the "Agreed Cryptographic Mechanisms" endorsed by the European Cybersecurity Certification Group and published by ENISA [1].
    • (c) SHA3-256 or higher output hash size, in compliance with the "Agreed Cryptographic Mechanisms" endorsed by the European Cybersecurity Certification Group and published by ENISA [1].

  • REQ-7.5-05 Providers of qualified electronic ledgers shall ensure the data integrity of data records in the electronic ledger. To this extent, they shall use advanced electronic signatures based on qualified certificates or advanced electronic seals based on qualified certificates, in accordance with the following standards and specifications:

    • (a) any signature or seal formats that are compliant with the "Agreed Cryptographic Mechanisms" endorsed by the European Cybersecurity Certification Group and published by ENISA [1];
    • (b) SHA-256 or higher output hash size, in compliance with the "Agreed Cryptographic Mechanisms" endorsed by the European Cybersecurity Certification Group and published by ENISA [1];
    • (c) SHA3-256 or higher output hash size, in compliance with the "Agreed Cryptographic Mechanisms" endorsed by the European Cybersecurity Certification Group and published by ENISA [1].
    • (d) Providers of qualified electronic ledgers shall ensure the immediate detectability of any subsequent change to data recorded in a qualified electronic ledger.

  • REQ-7.5-06 Where digital signature mechanisms are used, signing private keys of the provider of qualified electronic ledger shall be held and used within a secure cryptographic device which is a trustworthy system certified in accordance with:

    • (a) Common Criteria for Information Technology Security Evaluation, as set out in ISO/IEC 15408 [6] or in Common Criteria for Information Technology Security Evaluation, version CC:2022, Parts 1 through 5, published by the participants of the Arrangement on the Recognition of Common Criteria Certificates in the field of IT Security, and certified to EAL 4 or higher
    • or
    • (b) EUCC [4][5], and certified to EAL 4 or higher
    • or
    • (c) until 31.12.2030, FIPS PUB 140-3 [3] level 3.
    • This certification shall be to a security target or protection profile, or to a module design and security documentation, which meets the requirements of the present document, based on a risk analysis and taking into account physical and other non-technical security measures.
    • If the secure cryptographic device benefits from an EUCC [4][5] certification, then this device shall be configured and used in accordance with that certification.

    (7) 7.8 Network security:

  • REQ-7.8-14X The vulnerability scan requested by REQ-7.8-13 of ETSI EN 319 401 shall be performed at least once per quarter.

  • REQ-7.8-13 The vulnerability scans shall be performed at least once per quarter on all public-facing systems and networks.

  • REQ-7.8-18X The penetration test requested by REQ-7.8-17X of ETSI EN 319 401 shall be performed at least once per year.

  • REQ-7.8-17X Penetration tests shall be performed at least once per year.

  • REQ-7.8-21X Firewalls shall also be configured to prevent all protocols and accesses not required for the operation of the TSP.

    (8) 7.9.1 Monitoring and logging:

  • REQ-7.9.1-02X Monitoring activities shall take account of the sensitivity of any information collected or analysed.

    (9) 7.12 TSP termination and termination plans:

  • REQ-7.12-02A The TSP's termination plan shall comply with the requirements set out in the implementing acts adopted pursuant to Art. 24(5) of Regulation (EU) No 910/2014 [i.1].

(b) Additionally for all providers of qualified electronic ledgers making use of distributed electronic ledger technologies:

(1) ISO 23257:2022 Blockchain and distributed ledger technologies -- Reference architecture, clause 9, providing a complete description of the distributed electronic ledger technology system, the corresponding distributed electronic ledger technology network and distributed electronic ledger technology nodes;

(2) ISO/TS 23635:2022. Blockchain and distributed ledger technologies -- Guidelines for governance, with respect to written and publicly accessible policies and practices related to the governance structure for the electronic ledger service they provide.