On 26 June 2026, the European Parliament adopted a report amending the proposed regulation on the legal tender of euro banknotes and coins, significantly reinforcing consumer rights to pay with cash and tightening conditions under which businesses can refuse it. The amendments, tabled by the EPP group and rapporteur Fernando Navarrete Rojas, shift the regulatory balance from general principles toward a more prescriptive, enforceable regime that protects cash as a means of payment in an increasingly digital economy.
The report introduces a new article prohibiting unilateral ex ante exclusions of cash payments, requiring that any contractual term excluding cash be individually negotiated rather than part of standard terms. This directly targets cashless-only policies in shops and restaurants, placing the burden on businesses to prove a genuine, individually agreed-upon alternative. A new recital clarifies that if a payee claims a prior agreement on a different payment method, the burden of proof lies with the payee. The amendments also narrow the grounds for refusing cash: the 'good faith' exception is now explicitly linked to proportionality and concrete circumstances beyond the payee's control, and refusal is permissible only if the payee genuinely lacks change for a large note.
Member States face new obligations under the amended text. They must establish a 'cash resilience plan' or equivalent measures to ensure access to cash during widespread disruptions to digital payment systems, such as cyberattacks or power outages, transforming a passive monitoring duty into active preparedness. The regulation also strengthens requirements for Member States to provide clear information on remedies and complaint channels for unlawful cash refusal or insufficient access. In a landmark change, the regulation is added to the list of EU laws covered by the Representative Actions Directive, allowing qualified consumer organisations to bring collective actions against businesses that systematically violate cash acceptance rules.
The practical effect of the amendments is a significant shift in the balance of power from businesses to consumers. For businesses, the individually negotiated clause and reversal of the burden of proof make it legally risky to adopt cashless models; they must proactively offer cash unless they can prove a specific, agreed-upon exception with each customer. The threat of collective actions adds a powerful deterrent. For consumers, the amendments provide robust, enforceable rights, protecting them from being forced into digital payments and ensuring cash remains a fallback option in crises, particularly for vulnerable groups such as the elderly, low-income, and unbanked. For Member States, the obligation shifts from monitoring to active planning and enforcement, requiring designated competent authorities with real powers and effective complaint mechanisms. The report now heads to plenary for a vote; if adopted, it will become Parliament's position for negotiations with the Council.