The purpose of this analysis is to examine the current state and future potential of cross-border digital Powers of Attorney (PoAs) in the Nordic and Baltic countries. The analysis is structured around two main areas: i) an as-is assessment of the digital, legal, and social landscape, and ii) a to-be analysis exploring future scenarios, including use cases, Proof of Concept, and alignment with EU frameworks such as the EUDIW and OOTS.
With this project, the Nordic Council of Ministers wish to both increase the integration of the Nordic-Baltic region as well as align with key EU-initiatives such as the European Digital Identity Wallet (EUDIW) and Single Digital Gateway (SDG).
Context
Established in 2017 by the Nordic Council of Ministers for Digitalisation, MR-DIGITAL plays a central role in promoting digital cohesion and addressing cross-border challenges for citizens and businesses in the Nordic-Baltic region. Acting as a strategic coordinator, MR-DIGITAL is committed to achieving the shared vision of making the Nordic region the most sustainable and integrated in the world by 2030. This ambition is supported by the Digital North 2.0 declaration, which leverages digitalization to improve mobility, integration, and entrepreneurship, as well as to foster green economic growth and drive global digital transformation.
A current priority for MR-DIGITAL is the digitalization of Power of Attorney (PoA) systems in the Nordic-Baltic countries, aiming to ensure greater interoperability and harmonization across the region. PoA solutions are increasingly tied to digital advancements across Europe, where technological developments in the public sector have led to new EU regulations and initiatives, such as the European Health Data Space (EHDS), the revised eIDAS regulation, the European Digital Identity Wallet (EUDIW), and the Single Digital Gateway (SDG). These initiatives are designed to facilitate secure, efficient digital interactions for businesses, citizens, and public authorities across the EU, thus enabling seamless cross-border services and enhancing user experience.
In this context, this project addresses significant differences in PoA accessibility, governance, and legal frameworks across the Nordic-Baltic region. As PoA solutions vary widely due to differences in national governance models, legal traditions, and levels of technological readiness, the project’s objective is to conduct a comprehensive analysis that identifies best practices and proposes strategies for harmonization. By aligning Nordic-Baltic PoA systems with EU digital initiatives and strategies, this work will not only contribute to a more cohesive digital environment and strengthen cross-border digital interactions and access to services for all users in the region but also position the Nordic-Baltic area to both align with and actively influence the development of EU frameworks in this political realm, fostering greater regional integration and mobility.
Scope of the study
The scope of this study encompasses both a geographical and conceptual framework, defining the PoA concept in a digitalized Nordic-Baltic context. It covers the Nordic countries—Denmark (including Greenland and the Faroe Islands), Finland (including Åland), Iceland, Norway, and Sweden—and the Baltic countries, Estonia, Latvia, and Lithuania. These countries form the analytical scope due to the region's ambition to become the most digitally integrated in the world.
This study provides an in-depth examination of PoA within the Nordic-Baltic region, specifically focusing on digital PoA. Digital PoA refers to legally binding authorizations granted by an individual or an organization to another person or entity to act on their behalf, executed through digital platforms.
The scope also includes a detailed breakdown of PoAs digital, legal, and social dimensions:
Digital Dimension: Analysis of digital tools and platforms that support PoA transactions across borders, enabling secure, efficient authorizations.
Legal Dimension: Examination of the legal frameworks governing PoA in each country and the variances in governance models.
Social Dimension: Consideration of the social factors influencing PoA adoption, especially for vulnerable and non-digital users.
Findings from Greenland, the Faroe Islands, and Åland will be included under Denmark and Finland, as their digital, legal, and social infrastructures overlap.
The report provides a two-part analysis of the PoA landscape in the Nordic-Baltic region, divided into an as-is and a to-be description.
The as-is description will contain an identification of the most frequently used digital PoAs within the sectors of health, tax and business - both for natural persons, e.g. individuals, and legal persons, e.g. companies. Subsequently, there will be a mapping of the current PoA landscape, divided into digital, legal, and social sections. The report will contain an overall cross-border description of the PoA landscape, with
Annex 1 providing a detailed review of each country.
The to-be analysis is carried out on the basis of the as-is description with the modification that the to-be analysis primarily focuses on legal persons, e.g. companies. The to-be analysis will, i.a., include the following:
Key take aways for securing future cross-border interoperability of digital PoAs.
Insights on how new (EU?)regulation of PoAs will influence the Nordic-Baltic region
Preparation of use-cases for EU Digital Wallet (EUDIW), including evaluation of verified credentials and attestation of attributes.
Identification and description of a possible Proof of Concept that could be tested in the EUDIW's architecture.
If possible, examination of other relevant interlinking systems or frameworks for providing cross-border PoAs.
Report structure
The report consists of three main sections, leading to a set of recommendations aimed at enhancing cross-border digital PoA interoperability in the Nordic-Baltic region.
Chapter 2, Methodology, outlines the study’s approach, including data collection methods, scope, definitions, and frameworks for analysing the current (as-is) and future (to-be) PoA landscapes across legal, digital, and social dimensions.
Chapter 3, As-Is Analysis, investigates the current PoA practices within health, tax, and business sectors, detailing governance models, digital maturity, and accessibility variations between countries. This section identifies common challenges, such as support for vulnerable groups and cross-border compatibility.
Chapter 4, To-Be Analysis, proposes potential future developments for digital PoA solutions, including key takeaways for enhancing interoperability, use-case scenarios for the EU Digital Identity Wallet (EUDIW), and a potential Proof of Concept. This section concludes with strategic recommendations for aligning regional PoA solutions with EU initiatives.
At the end of the report, there are 4 appendices. Appendix 1 contains a thorough review of the use of digital proxies in all countries. Appendix 2 presents a list of the most used digital proxies, also distributed across all countries. Appendix 3 is a review of Frequently Used Abbreviations. Appendix 4 is descriptions on relevant regulations.