Modelos

EX-16 Form Spain: Cédula de Inscripción and Título de Viaje

EX-16 is Spain’s official form for requesting a Cédula de Inscripción or, in qualifying circumstances, a Título de Viaje. It is intended for exceptional cases involving foreign nationals in Spain who cannot obtain normal identity or travel documentation from the authorities of any country.

EX-16 is not a normal passport-renewal form, residence application, NIE application or TIE application.

The form deals with two distinct documents:

Cédula de Inscripción — Spanish documentation for certain foreign nationals who cannot be documented by any country.
Título de Viaje — a special travel document that Spain may issue in qualifying circumstances when an undocumented person has an exceptional need to leave Spanish territory.

The current procedure operates under Spain’s Immigration Regulation established by Royal Decree 1155/2024.

If you are trying to identify the correct immigration form, see our Spain Immigration Forms: EX-00 to EX-32 guide.

What Is Form EX-16?

The official name of EX-16 is:

Solicitud de Cédula de Inscripción o Título de Viaje

EX-16 deals primarily with documentation rather than granting an ordinary immigration status.

The central question is normally:

Can the foreign national be documented by their own country or another country?

If normal national documentation can be obtained, the Cédula de Inscripción procedure will generally not be the appropriate solution.

If the person genuinely cannot obtain such documentation and the other legal conditions are satisfied, Spain can investigate the person’s identity and circumstances and potentially issue Spanish documentation.

EX-16 at a Glance

Question	Answer
Form	EX-16
Main purpose	Documentation of certain undocumented foreign nationals
Document 1	Cédula de Inscripción
Document 2	Título de Viaje
Ordinary passport replacement	No
Cédula application	Personally and in writing
Main authority	Policía Nacional
Identity evidence	Required where available, even if expired
Proof consulate cannot document applicant	Normally required
Provisional identification	Possible for 3 months
Cédula renewal	Annually
Gives residence automatically	No
Residence application possible separately	Yes, where requirements are met
Título de Viaje	For qualifying exceptional travel need
Current framework	Royal Decree 1155/2024

What Is a Cédula de Inscripción?

A Cédula de Inscripción is a Spanish identification document issued in exceptional circumstances to a foreign national who cannot obtain documentation from the authorities of any country.

It allows Spain to formally document the individual after the required identity and background checks have been completed.

A simple way to understand the distinction is:

Your country can document you → normally use national documentation

No country can document you + EX-16 requirements satisfied → Cédula de Inscripción may be possible

The procedure is designed for genuine cases of indocumentación, not ordinary passport inconvenience.

Who Can Apply for a Cédula de Inscripción?

The procedure concerns a foreign national who is in Spain and can establish that they cannot be documented by the authorities of any country.

The applicant must also demonstrate circumstances justifying documentation by Spain.

The current framework identifies grounds involving:

exceptional humanitarian reasons;
public interest;
commitments undertaken by Spain.

Being unable to obtain a passport is therefore an important part of the procedure, but it is not necessarily the only issue that must be demonstrated.

Who Normally Should Not Use EX-16?

EX-16 should not normally be used simply because:

your passport has expired;
your passport is about to expire;
your passport has been lost;
your embassy appointment is inconvenient;
passport renewal is taking longer than expected;
you need an NIE;
you need your first TIE;
your TIE has expired;
you are renewing Spanish residence;
you need temporary permission to return to Spain;
you are an EU citizen registering residence.

If your country can issue or replace your passport, the normal solution is generally to obtain documentation from that country.

For ordinary passport-related assistance, see our Passport Renewal in Spain guide.

EX-16 Is Not a Passport Renewal Procedure

There is an important difference between:

temporarily not possessing a valid passport

and:

being unable to obtain documentation from any country.

For example, losing a passport does not normally make someone an undocumented foreign national for EX-16 purposes if their embassy can issue a replacement passport.

The Cédula de Inscripción is designed for much more exceptional circumstances.

When Must the Cédula Application Be Made?

Under the current rules, the documentation request should be made as soon as the person becomes undocumented.

The application is made:

personally;
in writing;
before the corresponding Policía Nacional office.

This personal element is important because Spanish police need to investigate and verify the applicant’s identity and circumstances.

What Must You Prove About Your Identity?

The applicant should provide any available documents that may help Spanish authorities establish:

identity;
origin;
nationality.

Importantly, those documents can still be relevant even if they have expired.

Potential evidence can include:

expired passports;
previous identity cards;
birth records;
old travel documents;
nationality documents;
previous immigration documents;
family documentation;
other records identifying the person.

The authorities are not simply checking whether the applicant possesses a currently valid passport.

They are reconstructing and verifying the applicant’s identity.

Do You Have to Contact Your Embassy or Consulate?

Normally, yes.

A central element of the ordinary Cédula de Inscripción procedure is proving that the applicant cannot be documented by the relevant consular authority.

Under the current framework, this is generally demonstrated through a notarial record — acta notarial.

The notarial record should contain available evidence concerning:

identity;
origin;
nationality;

and should provide evidence of the request made to the appropriate consular office and the fact that the documentation request was not attended to.

Simply telling Policía Nacional that:

“My embassy will not issue my passport”

is not normally equivalent to providing the formal evidence required by the procedure.

When Can the Notarial Requirement Be Waived?

There are important exceptions.

Exceptional-Circumstances Residence Cases

Where someone is applying for temporary residence due to exceptional circumstances and serious reasons prevent them from appearing at the relevant consular office, the ordinary notarial requirement can be treated differently under the applicable procedure.

In these circumstances, the authorities may obtain additional reports through the relevant Spanish administration.

Certain Unaccompanied Minors and Former Protected Minors

Special rules also apply in immigration situations involving certain:

unaccompanied foreign minors;
young foreign nationals who were previously under child-protection measures.

The competent public child-protection authority can play a specific role in documenting these cases.

The current EX-16 form recognizes these specialized situations.

What Exceptional Circumstances Must Be Proven?

Being unable to obtain national documentation is not necessarily the entire test.

The applicant should also provide evidence supporting the legal grounds justifying documentation by Spain.

These can involve:

Exceptional Humanitarian Reasons

Evidence depends entirely on the individual circumstances.

Public Interest

The applicant must establish the public-interest circumstances supporting Spanish documentation.

Commitments Undertaken by Spain

Documentation can also arise where commitments undertaken by Spain justify it.

The evidence should explain clearly why Spanish documentation is required in the individual case.

What Happens After the Initial Police Checks?

After the initial identity checks, a foreign national who wishes to remain in Spain can, where the legal requirements are met, receive a provisional identification document while the authorities complete their investigation.

This provisional document is valid for three months.

It provides temporary identification during the verification period.

However, the provisional document will not be issued in certain situations involving an applicable prohibition on entry or an expulsion order.

Is the Three-Month Document the Final Cédula?

No.

The provisional identification document and the final Cédula de Inscripción are different stages.

The procedure can be understood as:

EX-16 application → Initial identity checks → 3-month provisional identification → Further investigation → Final decision → Cédula de Inscripción if approved

Do not treat the provisional document as though the final Cédula has already been issued.

What Happens When the Investigation Is Completed?

After the authorities complete the documentation procedure, and provided the applicant is not affected by circumstances preventing issuance, the person can be registered in the corresponding section of Spain’s foreign-national records.

After payment of the applicable fees, the competent police authority can issue the Cédula de Inscripción.

How Long Is the Cédula de Inscripción Valid?

The Cédula de Inscripción must be renewed annually.

It should therefore not be treated as permanent identity documentation.

Renewal remains relevant while the circumstances that justified Spanish documentation continue.

What Happens If Another Country Later Gives You a Passport?

The Cédula de Inscripción exists because the foreign national cannot be documented by another country.

If that situation changes, the Spanish document loses its legal basis.

The Cédula can lose validity when the person:

becomes documented by a country;
acquires Spanish nationality;
acquires another nationality.

The person must notify the appropriate police authorities within the applicable period after the event that causes the Cédula to lose validity.

Does a Cédula de Inscripción Give You Spanish Residence?

No.

This is one of the most important distinctions.

A Cédula de Inscripción is primarily an identity and documentation instrument.

It does not automatically grant:

temporary residence;
long-term residence;
the right to work;
Spanish nationality;
a TIE.

Documentation and immigration status are separate legal concepts.

Can a Cédula Holder Apply for Spanish Residence?

Potentially, yes.

A person granted a Cédula de Inscripción may be able to apply for an appropriate residence authorization due to exceptional circumstances where the relevant requirements are satisfied.

In qualifying cases, the residence application and the Cédula procedure can be coordinated.

That does not mean residence is automatic.

The person must independently satisfy the legal requirements for the relevant exceptional-circumstances residence route.

For the main exceptional-circumstances form, see our EX-10 Arraigo and Exceptional Residence guide.

What Happens If the Cédula Application Is Refused?

A refusal can have serious immigration consequences.

Depending on the person’s situation and the applicable immigration rules, refusal can be followed by procedures concerning:

departure;
return;
removal;
expulsion.

EX-16 should therefore not be treated as a casual documentation request.

It forms part of a wider examination of the applicant’s identity and immigration circumstances.

What Is a Título de Viaje?

The second principal function of EX-16 concerns a Título de Viaje, or travel document.

Spain may issue this document to a foreign national who:

is in Spain;
cannot obtain their own passport under the applicable undocumented-person rules;
satisfies the relevant documentation requirements; and
demonstrates an exceptional need to leave Spanish territory.

The Título de Viaje is not simply a Spanish passport issued to a foreign national.

It is a special travel document created for an exceptional situation.

Does Every Cédula Holder Automatically Receive a Título de Viaje?

No.

The Cédula de Inscripción and Título de Viaje have different functions.

Cédula de Inscripción → identification and documentation in Spain

Título de Viaje → qualifying international travel

A person must satisfy the requirements for the travel document separately.

What Reasons Can Support a Título de Viaje?

The applicant must demonstrate an exceptional need to leave Spain.

The circumstances are assessed individually.

The Título de Viaje should therefore not be treated as a general convenience document for discretionary travel whenever someone does not possess a national passport.

Which Countries Can You Visit With a Título de Viaje?

The document is issued subject to the destinations and limitations established in the individual case.

Its use can therefore be restricted according to:

destination;
validity;
travel circumstances;
whether return to Spain is authorized.

Always read the exact conditions written into the issued travel document.

Do not assume that it functions like an ordinary passport accepted for unrestricted worldwide travel.

Does a Título de Viaje Allow You to Return to Spain?

It can, depending on the document issued.

However, there is an important exception.

If the sole purpose of the Título de Viaje is to allow the person to return to their:

country of nationality; or
country of residence,

the document does not include authorization to return to Spain.

Before travelling, check whether the issued document actually provides for re-entry into Spain.

How Long Is a Título de Viaje Valid?

There is no single universal validity period that should be assumed for every Título de Viaje.

The issued document specifies:

its validity;
the countries or destinations involved;
any restrictions;
whether return to Spain is authorized.

Always use the conditions printed on the individual document.

Título de Viaje vs Autorización de Regreso

These are completely different documents.

Título de Viaje	Autorización de Regreso
For certain people unable to obtain their own passport	For certain residents or stay holders who need temporary permission to return
Connected with EX-16	Connected with EX-13
Addresses lack of travel documentation	Addresses temporary re-entry-document problems
Destinations and limitations can be individually defined	Used under specific Spanish return-authorization rules

For example:

No passport can be obtained + exceptional need to travel → EX-16 may be relevant

Residence renewal pending + expired TIE + need to travel → EX-13 may be relevant

For the second situation, read our EX-13 Autorización de Regreso guide.

EX-16 Is Not a Refugee Travel Document Guide

Spain also issues documentation under separate legal frameworks involving:

international protection;
refugee status;
stateless status.

Those procedures have their own rules.

Do not assume that every document described as a travel document in Spanish immigration is obtained through the ordinary EX-16 procedure.

What Information Does EX-16 Ask For?

The current EX-16 form is divided into several main sections.

Applicant Details

The first section asks for information including:

passport, where applicable;
NIE, if assigned;
surnames;
first name;
sex;
date of birth;
place of birth;
country of birth;
nationality;
marital status;
parents’ names;
Spanish address;
telephone;
email;
legal representative where applicable.

Because the purpose of the procedure is often to establish the applicant’s identity, consistency is particularly important.

Provide the information as accurately as possible.

Representative Details

The form includes a section for a representative involved in the application where applicable.

This can include:

name or business name;
DNI, NIE or passport;
Spanish address;
telephone;
email;
legal representative information.

Special rules can apply in cases involving minors or people requiring legal representation.

Address for Notifications

EX-16 also contains a section for official administrative communications.

Electronic notifications may be available through Spain’s electronic administration systems where the applicant has the necessary access.

If you need to understand Spanish electronic administration, see our Digital Certificate in Spain guide.

Type of Document Requested

The current EX-16 distinguishes between:

Cédula de Inscripción;
Título de Viaje.

For a Cédula de Inscripción, the form can also accommodate specialized situations involving certain protected minors and young adults.

For a Título de Viaje, the form includes information about intended travel and return conditions.

Reasons for the Request

The form identifies grounds including:

exceptional humanitarian reasons;
public interest;
commitments undertaken by Spain.

The supporting documentation should correspond directly with the reason relied upon.

Documents for a Cédula de Inscripción Application

Because EX-16 cases are highly individual, there is no identical document package for every applicant.

However, preparation can include:

completed EX-16;
expired passport where available;
previous identity documents;
birth documentation;
evidence of nationality or origin;
previous travel documents;
previous Spanish immigration documentation;
evidence of attempts to obtain consular documentation;
required notarial evidence;
evidence of exceptional humanitarian reasons;
public-interest evidence where applicable;
documentation relating to commitments undertaken by Spain where applicable;
child-protection documentation in qualifying cases;
NIE information if already assigned;
Spanish address information;
representative documentation where applicable;
applicable fee documentation.

The applicant should provide all available evidence that helps the authorities establish their identity.

Why Expired Documents Can Still Be Useful

EX-16 differs from many ordinary immigration procedures.

An expired document may no longer be valid for travel but can still be extremely valuable as evidence of:

identity;
date of birth;
nationality;
origin;
previous official documentation.

Do not discard old identity documents simply because they are no longer valid for travel.

Documents for a Título de Viaje

A Título de Viaje request may require evidence including:

completed EX-16;
documentation establishing identity;
evidence showing inability to obtain a passport;
documentation from the underlying identification process;
evidence establishing the exceptional need to travel;
intended destination;
information concerning return to Spain;
applicable fee documentation.

The exact package depends heavily on the individual circumstances.

What Fee Is Used for EX-16?

The applicable police documentation fee is normally processed using:

Modelo 790 Código 012

under the corresponding document category.

Always select the current fee concept that matches the document being requested.

Avoid relying on an old euro amount because government fees can change.

Where Is EX-16 Submitted?

The ordinary Cédula de Inscripción request is made personally and in writing before the corresponding Policía Nacional office.

The police play a central role in:

receiving the application;
investigating identity;
verifying circumstances;
processing the Cédula;
issuing the relevant documentation.

The procedure should not be confused with an ordinary online residence application through Mercurio.

Can a Cédula de Inscripción Be Used in the TIE Process?

A Cédula de Inscripción can serve as identity documentation in qualifying Spanish immigration procedures.

For example, where the person later receives a residence authorization requiring a TIE, the Cédula may be relevant as part of the identity documentation.

However, the documents remain different:

Cédula de Inscripción → identity documentation

TIE → physical card connected with qualifying immigration status

For the physical residence-card procedure, read our TIE Card Spain guide and EX-17 Form guide.

EX-16 vs EX-15

EX-15 and EX-16 should not be confused.

Form	Purpose
EX-15	NIE assignment and resident/non-resident certificates
EX-16	Cédula de Inscripción and qualifying Título de Viaje

Someone who simply needs an NIE should not use EX-16.

Read our EX-15 NIE Form guide for that procedure.

EX-16 vs EX-17

EX-17 concerns the physical Tarjeta de Identidad de Extranjero.

Someone who already has the appropriate identity documentation and immigration authorization and simply needs the physical TIE normally does not need EX-16.

EX-16 vs EX-13

EX-13 concerns an Autorización de Regreso.

It is frequently relevant when someone:

has an expired TIE;
has already filed a residence renewal;
needs to leave Spain and return.

EX-16 concerns a different issue: inability to obtain national identity or travel documentation.

EX-16 vs EX-10

EX-16 documents certain foreign nationals who cannot obtain ordinary national documentation.

EX-10 concerns residence due to exceptional circumstances.

A person can potentially be involved in both procedures where the legal requirements are met.

However:

EX-16 approval does not equal EX-10 approval.

Each procedure has its own legal requirements.

Common EX-16 Mistakes

Using EX-16 Because a Passport Expired

An expired passport does not automatically mean your country cannot document you.

Using EX-16 After Losing a Passport

If your country can issue a replacement, that is normally the appropriate solution.

Providing No Proof of Identity

Expired documents and other records can be extremely important.

Providing No Evidence From the Consular Process

The ordinary procedure requires evidence that the relevant consular authority cannot document you.

Forgetting the Notarial Evidence

For standard cases, the acta notarial can be a central part of proving the inability to obtain documentation.

Ignoring Special Exceptions

Different evidence rules can apply in specified exceptional-residence and child-protection cases.

Assuming the Cédula Gives Residence

It does not.

Assuming the Cédula Gives Work Rights

It does not automatically provide a right to work.

Confusing the Three-Month Provisional Document With the Final Cédula

They are different stages.

Forgetting Annual Renewal

The final Cédula must be renewed annually.

Keeping the Cédula After Receiving National Documentation

Its legal basis ends when another country documents you or you acquire Spanish or another nationality.

Failing to Notify Policía Nacional

The relevant change should be communicated to the competent police authority within the applicable period.

Treating Título de Viaje Like a Passport

Its validity and geographic restrictions are established for the individual case.

Assuming Every Título de Viaje Allows Return to Spain

A document issued only to return someone to their country of nationality or residence does not include authorization to return to Spain.

Confusing Título de Viaje With EX-13

A travel document and an Autorización de Regreso solve different problems.

EX-16 Application Checklist

Before beginning the procedure, confirm that:

EX-16 is genuinely the correct form;
you cannot obtain documentation from the authorities of any country;
the problem is more than an ordinary expired or lost passport;
you have collected every available identity document;
expired identity documents have been retained;
you can provide evidence of origin and nationality where possible;
the relevant consular authority has been approached;
the required notarial evidence is prepared unless an exception applies;
humanitarian, public-interest or other qualifying grounds are documented;
child-protection evidence is available where applicable;
EX-16 is correctly completed;
the correct document type is identified;
your Spanish contact information is accurate;
the applicable Modelo 790 Código 012 fee is prepared;
you understand the possibility of a three-month provisional identification document;
you understand that the final Cédula requires annual renewal;
you understand that Cédula approval does not automatically grant residence;
you have assessed whether an exceptional-circumstances residence procedure may also be relevant.

Frequently Asked Questions About EX-16

What is EX-16 in Spain?

EX-16 is Spain’s official form for requesting a Cédula de Inscripción or a qualifying Título de Viaje.

What is a Cédula de Inscripción?

It is Spanish documentation for certain foreign nationals who genuinely cannot obtain identity documentation from the authorities of any country.

Is EX-16 a residence application?

No.

The Cédula is primarily an identification document.

Can residence be requested separately?

Potentially yes.

A person who satisfies the requirements for residence due to exceptional circumstances can apply under the appropriate residence procedure.

Do I need to prove that my embassy cannot document me?

Normally yes.

The ordinary procedure generally requires formal evidence of the unsuccessful consular documentation process, subject to specific exceptions.

Can expired documents be used as evidence?

Yes.

Documents that are no longer valid can still help establish identity, origin and nationality.

What happens while police investigate my identity?

After the initial checks, a qualifying person can receive a provisional identification document valid for three months while the investigation continues.

Is the provisional document the final Cédula?

No.

How long does the Cédula de Inscripción last?

The Cédula must be renewed annually.

What happens if I later obtain a passport?

The legal basis for the Cédula ends when the person becomes documented by a country.

What if I acquire Spanish nationality?

The Cédula also loses its legal basis.

Can I work with a Cédula de Inscripción?

The Cédula itself is not a general work authorization.

Work rights depend on the immigration authorization held by the person.

Can I get a Cédula because my passport-renewal appointment is delayed?

Not normally if your country remains capable of documenting you.

What is a Título de Viaje?

It is a special travel document Spain can issue in qualifying circumstances to an undocumented person who cannot obtain their own passport and has an exceptional need to leave Spain.

Does the Título de Viaje work everywhere?

Not necessarily.

Its destinations, validity and limitations are established for the individual case.

Does it allow me back into Spain?

It can, depending on the document issued.

However, if it is issued solely to allow you to return to your country of nationality or residence, it does not contain authorization to return to Spain.

Is a Título de Viaje the same as an Autorización de Regreso?

No.

EX-13 is associated with the Autorización de Regreso procedure.

Is EX-16 used for an NIE?

No.

EX-15 is the relevant form for a standalone NIE request.

Is EX-16 used for a TIE?

No.

EX-17 is associated with the physical TIE application.

Need Help Identifying the Correct Spanish Immigration Document?

EX-16 is one of Spain’s most specialized foreigner-documentation forms.

The usual sequence is:

Impossibility of obtaining national documentation → Identity evidence → Evidence of inability to obtain consular documentation → Qualifying exceptional grounds → EX-16 → Police investigation → Provisional identification where applicable → Cédula de Inscripción → Separate residence procedure if eligible

For international travel:

Documentation situation → Exceptional need to travel → Título de Viaje → Check destination, validity and return conditions

You can compare all Spanish immigration forms in our Spain Immigration Forms guide.

If your issue concerns an NIE, read our EX-15 NIE Form guide.

If you need a physical residence card, see our EX-17 TIE Form guide.

If your TIE is pending or expired and your issue is temporary return to Spain, see our EX-13 Autorización de Regreso guide.

For assistance identifying the correct procedure and organizing Spanish immigration documentation, contact Newcomer.es.