The European Parliament’s Committee on Economic and Monetary Affairs (ECON) has published a draft report proposing significant changes to the EU’s forthcoming regulation on the legal tender status of euro banknotes and coins. The text, dated 3 November 2025, reinforces Member States’ obligations to protect cash acceptance and maintain access to cash across the euro area, according to the official document.
The draft report amends the European Commission’s 2023 proposal, setting stricter monitoring rules, expanding protections for vulnerable groups, and clarifying enforcement tools. The proposal applies to all euro-area countries and targets growing concerns about the declining use of cash as digital payments expand. The updated text also makes clear that payers and payees must have accessible complaint channels when cash is unlawfully refused.
Stronger rules against “no-cash” policies
One of the most notable changes is a new article explicitly prohibiting “ex ante unilateral exclusions of cash,” including “no cash” signs or pre-formulated contract terms that prevent customers from paying in banknotes and coins. Such terms, the report states, should not be considered binding on consumers.
Member States would be required to monitor these exclusions across urban, rural, sparsely populated, and outermost regions. If widespread refusals undermine mandatory cash acceptance, national authorities must introduce proportionate corrective measures and establish a coherent enforcement mechanism.
Ensuring access to cash infrastructure
The ECON committee also proposes strengthened obligations to ensure “sufficient and effective access” to cash. This includes monitoring ATM density, availability of bank branches, withdrawal conditions, fees, and geographic disparities. Member States must intervene if access deteriorates and may be required to impose geographic access rules on banks or ATM operators.
Importantly, the text specifies that financial intermediaries should not bear losses from remedial measures. If governments require additional ATMs or branch services, Member States must compensate providers for related costs.
Protecting vulnerable groups
The report highlights that older citizens, people with disabilities, individuals with low digital skills, and financially excluded groups — such as the unbanked, asylum seekers, or migrants — remain highly dependent on cash. Safeguarding universal access to cash is framed as a cornerstone of financial inclusion and consumer protection.
Part of the broader Single Currency Package
The draft report sits alongside legislative proposals linked to the EU’s Single Currency Package, which also includes the digital euro regulation. In the explanatory statement, the rapporteur stresses that protecting cash is essential to maintaining monetary sovereignty, even as the EU considers introducing an offline and potentially online digital euro. Cash remains the only universally accessible form of central-bank money, the document notes.
The proposed amendments aim to ensure that cash remains fully usable across the euro area, providing citizens with a free choice of payment method while mitigating risks associated with Europe’s growing dependence on non-European payment providers.
EU institutions will continue negotiations in the coming months as the regulation proceeds through the ordinary legislative process.
Source: European Parliament, ECON Committee draft report (3 November 2025)
(https://www.europarl.europa.eu/doceo/document/ECON-PR-778137_EN.pdf)