The European Union has taken a decisive step towards establishing a uniform system for the protection of vulnerable adults in cross-border situations.
The new Regulation approved by the European Parliament and the Council introduces common rules governing the recognition of protective measures, powers of representation and legal acts adopted in one Member State, allowing them to produce effects throughout the EU without the need for additional procedures.
The reform responds to two increasingly significant phenomena: the ageing of the European population and the growing internationalisation of family wealth. According to EU data, the number of people over 65 living with disabilities is expected to increase by 77% by 2050, while a rising number of citizens now reside, invest or own assets in multiple jurisdictions across the Union.
Against this backdrop, the Regulation aligns EU law with the 2000 Hague Convention on the International Protection of Adults, with the aim of ensuring greater legal certainty, continuity in personal protection and a more efficient management of assets, investments and legal relationships spread across different jurisdictions.
Overcoming legal fragmentation
Jurisdiction, applicable law and recognition of decisions
At the core of the reform lies the introduction of common rules designed to determine:
- which authority has jurisdiction to adopt protective measures;
- which law is applicable;
- how decisions issued in another Member State must be recognised;
- and what legal effects powers of representation granted abroad should produce.
The primary connecting factor remains the vulnerable adult’s habitual residence, now a cornerstone of European private international law. However, the Regulation also introduces greater flexibility by taking into account additional connecting factors such as nationality and the location of assets.
The objective is to prevent conflicts between legal systems and ensure continuity of protection even when a person’s assets and interests are spread across several countries
The cornerstones of the new framework
Clearer rules on jurisdiction and applicable law
The new European framework establishes a comprehensive system for the protection of vulnerable adults in cross-border situations, introducing several major innovations.
First, the Regulation clarifies both jurisdiction and applicable law. While habitual residence remains the principal criterion, the new rules also recognise nationality, the location of assets and, in certain circumstances, the possibility for the individual concerned to choose the competent authority, provided there is a genuine connection with the selected State.
Automatic recognition of protective measures across the EU
One of the most significant developments concerns the automatic recognition of protective measures throughout the European Union. Decisions adopted in one Member State will be recognised in the others without the need for lengthy validation proceedings.
Public and notarial deeds will likewise retain cross-border effectiveness, thereby facilitating the administration of international assets, real estate holdings, bank accounts and corporate interests. Limited exceptions remain possible, particularly where the vulnerable person’s fundamental rights — including the right to be heard — have not been respected.
The European Certificate of Representation and Protection
The Regulation also introduces a new “European Certificate of Representation and Protection”, enabling guardians, support administrators and other representatives to prove their authority swiftly and effectively in any Member State.
The certificate may also be issued in digital format and used in dealings with banks, land registries, public authorities and healthcare institutions.
Cross-border placement and enhanced cooperation
Special attention is devoted to the issue of “placement” of vulnerable adults in another Member State, such as admission to residential care facilities. In such cases, authorities must act primarily in the best interests of the individual while respecting their wishes, preferences and dignity. The receiving State may oppose the placement only on justified grounds.
Finally, the reform strengthens cooperation between national authorities and promotes the progressive digitalisation of procedures, with the aim of reducing delays, costs and administrative barriers in the cross-border protection of individuals and international family wealth structures.
Implications for wealth planning and family governance
Managing international assets and family structures
The Regulation is expected to have significant implications for international wealth planning and succession structures. In professional practice, it is increasingly common to encounter families whose interests span multiple jurisdictions, including foreign real estate, international holding companies, trusts and cross-border financial investments.
Reducing governance risks and operational deadlocks
In such contexts, the loss of legal capacity of a family member may create substantial governance challenges and operational deadlocks. The availability of harmonised recognition and representation mechanisms will significantly reduce the risk of jurisdictional conflicts, procedural duplication and disruptions in asset management.
The Regulation may therefore become a cornerstone in the future evolution of European asset protection and international family governance structures.
Entry into force and future outlook
Timeline for implementation
The text must now receive formal approval from both the European Parliament and the Council of the European Union. Following publication in the Official Journal of the European Union, the Regulation will enter into force within twenty days, while the practical application of the new measures will take place progressively over the following twenty-four months.
This transitional period will allow Member States to adapt procedures, registries and administrative systems to the new framework.
A new approach to the protection of vulnerable adults
Beyond its technical aspects, however, the reform marks a profound shift in perspective: vulnerability is no longer regarded as a condition confined within the boundaries of a single national legal system, but rather as a reality requiring uniform protection across the European legal area.
Ultimately, the Regulation’s true political and cultural significance lies in ensuring that dignity, protection and continuity of representation accompany vulnerable individuals beyond national borders.
(Article written in collaboration with Chiara Pascale)
