{"attribution":{"source":"legal.exploreworldai.com","canonical":"https://legal.exploreworldai.com/api/public/v1/judgment-text?id=eu:c-746-18","cite_as":"NovaCopilot, legal.exploreworldai.com (https://legal.exploreworldai.com/api/public/v1/judgment-text?id=eu:c-746-18)","license":"https://legal.exploreworldai.com/revision","version":"legal-2026-10-23","fingerprint":"ewai:eu:b67bfc","proof":"sha256:4d9d947a173e79b997a93b6e334d5d9d9db9dbc91e1e5f72838949b704455137","jurisdiction":"eu","lang":"en","publisher":"NovaCopilot by ExploreWorld Legal","terms":"https://legal.exploreworldai.com/om"},"brand_source":"Source: NovaCopilot","item":{"schema_version":"1.0.0","id":"eu:c-746-18","jurisdiction":"eu","lang":"en","brand_source":"Source: NovaCopilot","brand":{"product":"NovaCopilot","platform":"ExploreWorldAI","infrastructure":"ExploreWorld Legal","infrastructure_url":"legal.exploreworldai.com","legal_entity":"Valkiv Ventures AB","permanent_url":"https://legal.exploreworldai.com/novacopilot","source":"Source: NovaCopilot","powered_by":"Powered by NovaCopilot","license":"https://legal.exploreworldai.com/licensvillkor"},"sections":[{"title":"62018CJ0746","paragraphs":[]},{"title":"JUDGMENT OF THE COURT (Grand Chamber)","paragraphs":[]},{"title":"2 March 2021 (\n *1\n )","paragraphs":["para_4","para_5","para_6","para_7","para_8","para_9","para_10","para_11","para_12","para_13","para_14","para_15","para_16","para_17","para_18","para_19","para_20","para_21","para_22","para_23","para_24","para_25","para_26","para_27","para_28","para_29","para_30","para_31","para_32","para_33","para_34","para_35","para_36","para_37","para_38","para_39","para_40","para_41","para_42","para_43"]},{"title":"Judgment","paragraphs":[]},{"title":"1","paragraphs":["para_46"]},{"title":"2","paragraphs":["para_48"]},{"title":"Legal context","paragraphs":[]},{"title":"EU law","paragraphs":[]},{"title":"3","paragraphs":[]},{"title":"Recitals 2 and 11 of Directive 2002/58 state:","paragraphs":["para_53","para_54","para_55"]},{"title":"(11)","paragraphs":["para_57"]},{"title":"4","paragraphs":[]},{"title":"Article 2 of Directive 2002/58, headed ‘Definitions’, provides:","paragraphs":["para_60"]},{"title":"The following definitions shall also apply:","paragraphs":[]},{"title":"(a)","paragraphs":["para_63"]},{"title":"(b)","paragraphs":["para_65"]},{"title":"(c)","paragraphs":["para_67"]},{"title":"(d)","paragraphs":["para_69","para_70"]},{"title":"5","paragraphs":["para_72","para_73","para_74","para_75"]},{"title":"6","paragraphs":[]},{"title":"Article 6 of Directive 2002/58, headed ‘Traffic data’, provides:","paragraphs":["para_78","para_79","para_80","para_81","para_82","para_83"]},{"title":"7","paragraphs":["para_85","para_86"]},{"title":"8","paragraphs":["para_88","para_89"]},{"title":"Estonian law","paragraphs":[]},{"title":"The Law on electronic communications","paragraphs":[]},{"title":"9","paragraphs":["para_93","para_94","para_95"]},{"title":"1)","paragraphs":["para_97"]},{"title":"2)","paragraphs":["para_99"]},{"title":"3)","paragraphs":["para_101"]},{"title":"4)","paragraphs":["para_103"]},{"title":"5)","paragraphs":["para_105"]},{"title":"6)","paragraphs":["para_107"]},{"title":"7)","paragraphs":["para_109"]},{"title":"8)","paragraphs":["para_111"]},{"title":"9)","paragraphs":["para_113"]},{"title":"10)","paragraphs":["para_115","para_116","para_117","para_118"]},{"title":"(11)   The data referred to in subparagraphs 2 and 3 of this paragraph shall be forwarded:","paragraphs":[]},{"title":"1)","paragraphs":["para_121","para_122"]},{"title":"The Code of Criminal Procedure","paragraphs":[]},{"title":"10","paragraphs":["para_125"]},{"title":"(1)   The parties to court proceedings are the public prosecutor’s office …","paragraphs":["para_127"]},{"title":"11","paragraphs":[]},{"title":"Paragraph 30 of that code is worded as follows:","paragraphs":["para_130","para_131"]},{"title":"12","paragraphs":[]},{"title":"Paragraph 90 1 of the code provides:","paragraphs":["para_134","para_135","para_136"]},{"title":"13","paragraphs":[]},{"title":"Paragraph 211 of the code states:","paragraphs":["para_139","para_140"]},{"title":"The Law on the public prosecutor’s office","paragraphs":[]},{"title":"14","paragraphs":["para_143","para_144","para_145","para_146"]},{"title":"15","paragraphs":[]},{"title":"Paragraph 2(2) of that law states:","paragraphs":["para_149"]},{"title":"The dispute in the main proceedings and the questions referred for a preliminary ruling","paragraphs":[]},{"title":"16","paragraphs":["para_152"]},{"title":"17","paragraphs":["para_154"]},{"title":"18","paragraphs":["para_156"]},{"title":"19","paragraphs":["para_158"]},{"title":"20","paragraphs":["para_160"]},{"title":"21","paragraphs":["para_162"]},{"title":"22","paragraphs":["para_164"]},{"title":"23","paragraphs":["para_166"]},{"title":"24","paragraphs":["para_168"]},{"title":"25","paragraphs":["para_170"]},{"title":"26","paragraphs":["para_172","para_173","para_174"]},{"title":"(2)","paragraphs":["para_176"]},{"title":"(3)","paragraphs":["para_178"]},{"title":"Consideration of the questions referred","paragraphs":[]},{"title":"The first and second questions","paragraphs":[]},{"title":"27","paragraphs":["para_182"]},{"title":"28","paragraphs":["para_184"]},{"title":"29","paragraphs":["para_186"]},{"title":"30","paragraphs":["para_188"]},{"title":"31","paragraphs":["para_190"]},{"title":"32","paragraphs":["para_192"]},{"title":"33","paragraphs":["para_194"]},{"title":"34","paragraphs":["para_196"]},{"title":"35","paragraphs":["para_198"]},{"title":"36","paragraphs":["para_200"]},{"title":"37","paragraphs":["para_202"]},{"title":"38","paragraphs":["para_204"]},{"title":"39","paragraphs":["para_206"]},{"title":"40","paragraphs":["para_208"]},{"title":"41","paragraphs":["para_210"]},{"title":"42","paragraphs":["para_212"]},{"title":"43","paragraphs":["para_214"]},{"title":"44","paragraphs":["para_216"]},{"title":"45","paragraphs":["para_218"]},{"title":"The third question","paragraphs":[]},{"title":"46","paragraphs":["para_221"]},{"title":"47","paragraphs":["para_223"]},{"title":"48","paragraphs":["para_225"]},{"title":"49","paragraphs":["para_227"]},{"title":"50","paragraphs":["para_229"]},{"title":"51","paragraphs":["para_231"]},{"title":"52","paragraphs":["para_233"]},{"title":"53","paragraphs":["para_235"]},{"title":"54","paragraphs":["para_237"]},{"title":"55","paragraphs":["para_239"]},{"title":"56","paragraphs":["para_241"]},{"title":"57","paragraphs":["para_243"]},{"title":"58","paragraphs":["para_245"]},{"title":"59","paragraphs":["para_247"]},{"title":"Costs","paragraphs":[]},{"title":"60","paragraphs":["para_250"]},{"title":"On those grounds, the Court (Grand Chamber) hereby rules:","paragraphs":["para_252","para_253","para_254","para_255","para_256","para_257"]}],"paragraphs":[{"text":"62018CJ0746","paragraph_id":"para_1"},{"text":"JUDGMENT OF THE COURT (Grand Chamber)","paragraph_id":"para_2"},{"text":"2 March 2021 (\n *1\n )","paragraph_id":"para_3"},{"text":"(Reference for a preliminary ruling – Processing of personal data in the electronic communications sector – Directive 2002/58/EC – Providers of electronic communications services – Confidentiality of the communications – Limitations – Article 15(1) – Articles 7, 8 and 11 and Article 52(1) of the Cha …","paragraph_id":"para_4"},{"text":"In Case C‑746/18,","paragraph_id":"para_5"},{"text":"REQUEST for a preliminary ruling under Article 267 TFEU from the Riigikohus (Supreme Court, Estonia), made by decision of 12 November 2018, received at the Court on 29 November 2018, in criminal proceedings against","paragraph_id":"para_6"},{"text":"H. K.,","paragraph_id":"para_7"},{"text":"other party:","paragraph_id":"para_8"},{"text":"Prokuratuur,","paragraph_id":"para_9"},{"text":"THE COURT (Grand Chamber),","paragraph_id":"para_10"},{"text":"composed of K. Lenaerts, President, R. Silva de Lapuerta, Vice-President, J.‑C. Bonichot, A. Arabadjiev, A. Prechal and L. Bay Larsen, Presidents of Chambers, T. von Danwitz (Rapporteur), M. Safjan, K. Jürimäe, C. Lycourgos and P.G. Xuereb, Judges,","paragraph_id":"para_11"},{"text":"Advocate General: G. Pitruzzella,","paragraph_id":"para_12"},{"text":"Registrar: C. Strömholm, Administrator,","paragraph_id":"para_13"},{"text":"having regard to the written procedure and further to the hearing on 15 October 2019,","paragraph_id":"para_14"},{"text":"after considering the observations submitted on behalf of:","paragraph_id":"para_15"},{"text":"–","paragraph_id":"para_16"},{"text":"H. K., by S. Reinsaar, vandeadvokaat,","paragraph_id":"para_17"},{"text":"–","paragraph_id":"para_18"},{"text":"the Prokuratuur, by T. Pern and M. Voogma, acting as Agents,","paragraph_id":"para_19"},{"text":"–","paragraph_id":"para_20"},{"text":"the Estonian Government, by N. Grünberg, acting as Agent,","paragraph_id":"para_21"},{"text":"–","paragraph_id":"para_22"},{"text":"the Danish Government, by J. Nymann-Lindegren and M.S. Wolff, acting as Agents,","paragraph_id":"para_23"},{"text":"–","paragraph_id":"para_24"},{"text":"Ireland, by M. Brown, G. Hodge, J. Quaney and A. Joyce, acting as Agents, and D. Fennelly, Barrister-at-Law,","paragraph_id":"para_25"},{"text":"–","paragraph_id":"para_26"},{"text":"the French Government, initially by D. Dubois, D. Colas, E. de Moustier and A.‑L. Desjonquères, and subsequently by D. Dubois, E. de Moustier and A.‑L. Desjonquères, acting as Agents,","paragraph_id":"para_27"},{"text":"–","paragraph_id":"para_28"},{"text":"the Latvian Government, initially by V. Kalniņa and I. Kucina, and subsequently by V. Soņeca and V. Kalniņa, acting as Agents,","paragraph_id":"para_29"},{"text":"–","paragraph_id":"para_30"},{"text":"the Hungarian Government, by M.Z. Fehér and A. Pokoraczki, acting as Agents,","paragraph_id":"para_31"},{"text":"–","paragraph_id":"para_32"},{"text":"the Polish Government, by B. Majczyna, acting as Agent,","paragraph_id":"para_33"},{"text":"–","paragraph_id":"para_34"},{"text":"the Portuguese Government, by L. Inez Fernandes, P. Barros da Costa, L. Medeiros and I. Oliveira, acting as Agents,","paragraph_id":"para_35"},{"text":"–","paragraph_id":"para_36"},{"text":"the Finnish Government, by J. Heliskoski, acting as Agent,","paragraph_id":"para_37"},{"text":"–","paragraph_id":"para_38"},{"text":"the United Kingdom Government, by S. Brandon and Z. Lavery, acting as Agents, G. Facenna QC and C. Knight, Barrister,","paragraph_id":"para_39"},{"text":"–","paragraph_id":"para_40"},{"text":"the European Commission, initially by H. Kranenborg, M. Wasmeier, P. Costa de Oliveira and K. Toomus, and subsequently by H. Kranenborg, M. Wasmeier and E. Randvere, acting as Agents,","paragraph_id":"para_41"},{"text":"after hearing the Opinion of the Advocate General at the sitting on 21 January 2020,","paragraph_id":"para_42"},{"text":"gives the following","paragraph_id":"para_43"},{"text":"Judgment","paragraph_id":"para_44"},{"text":"1","paragraph_id":"para_45"},{"text":"This request for a preliminary ruling concerns the interpretation of Article 15(1) of Directive 2002/58/EC of the European Parliament and of the Council of 12 July 2002 concerning the processing of personal data and the protection of privacy in the electronic communications sector (Directive on priv …","paragraph_id":"para_46"},{"text":"2","paragraph_id":"para_47"},{"text":"The request has been made in the context of criminal proceedings brought against H. K. on counts of theft, use of another person’s bank card and violence against persons party to court proceedings.","paragraph_id":"para_48"},{"text":"Legal context","paragraph_id":"para_49"},{"text":"EU law","paragraph_id":"para_50"},{"text":"3","paragraph_id":"para_51"},{"text":"Recitals 2 and 11 of Directive 2002/58 state:","paragraph_id":"para_52"},{"text":"‘(2)","paragraph_id":"para_53"},{"text":"This Directive seeks to respect the fundamental rights and observes the principles recognised in particular by the [Charter]. In particular, this Directive seeks to ensure full respect for the rights set out in Articles 7 and 8 of [the] Charter.","paragraph_id":"para_54"},{"text":"…","paragraph_id":"para_55"},{"text":"(11)","paragraph_id":"para_56"},{"text":"Like Directive 95/46/EC [of the European Parliament and of the Council of 24 October 1995 on the protection of individuals with regard to the processing of personal data and on the free movement of such data ( OJ 1995 L 281, p. 31 )], this Directive does not address issues of protection of fundament …","paragraph_id":"para_57"},{"text":"4","paragraph_id":"para_58"},{"text":"Article 2 of Directive 2002/58, headed ‘Definitions’, provides:","paragraph_id":"para_59"},{"text":"‘Save as otherwise provided, the definitions in Directive [95/46] and in Directive 2002/21/EC of the European Parliament and of the Council of 7 March 2002 on a common regulatory framework for electronic communications networks and services (Framework Directive) [( OJ 2002 L 108, p. 33 )] shall apply.","paragraph_id":"para_60"},{"text":"The following definitions shall also apply:","paragraph_id":"para_61"},{"text":"(a)","paragraph_id":"para_62"},{"text":"“user” means any natural person using a publicly available electronic communications service, for private or business purposes, without necessarily having subscribed to this service;","paragraph_id":"para_63"},{"text":"(b)","paragraph_id":"para_64"},{"text":"“traffic data” means any data processed for the purpose of the conveyance of a communication on an electronic communications network or for the billing thereof;","paragraph_id":"para_65"},{"text":"(c)","paragraph_id":"para_66"},{"text":"“location data” means any data processed in an electronic communications network or by an electronic communications service, indicating the geographic position of the terminal equipment of a user of a publicly available electronic communications service;","paragraph_id":"para_67"},{"text":"(d)","paragraph_id":"para_68"},{"text":"“communication” means any information exchanged or conveyed between a finite number of parties by means of a publicly available electronic communications service. This does not include any information conveyed as part of a broadcasting service to the public over an electronic communications network except to the extent that the information can be related to the identifiable subscriber or user receiving the information;","paragraph_id":"para_69"},{"text":"…’","paragraph_id":"para_70"},{"text":"5","paragraph_id":"para_71"},{"text":"As set out in Article 5 of Directive 2002/58, headed ‘Confidentiality of the communications’:","paragraph_id":"para_72"},{"text":"‘1.   Member States shall ensure the confidentiality of communications and the related traffic data by means of a public communications network and publicly available electronic communications services, through national legislation. In particular, they shall prohibit listening, tapping, storage or o …","paragraph_id":"para_73"},{"text":"…","paragraph_id":"para_74"},{"text":"3.   Member States shall ensure that the storing of information, or the gaining of access to information already stored, in the terminal equipment of a subscriber or user is only allowed on condition that the subscriber or user concerned has given his or her consent, having been provided with clear …","paragraph_id":"para_75"},{"text":"6","paragraph_id":"para_76"},{"text":"Article 6 of Directive 2002/58, headed ‘Traffic data’, provides:","paragraph_id":"para_77"},{"text":"‘1.   Traffic data relating to subscribers and users processed and stored by the provider of a public communications network or publicly available electronic communications service must be erased or made anonymous when it is no longer needed for the purpose of the transmission of a communication without prejudice to paragraphs 2, 3 and 5 of this Article and Article 15(1).","paragraph_id":"para_78"},{"text":"2.   Traffic data necessary for the purposes of subscriber billing and interconnection payments may be processed. Such processing is permissible only up to the end of the period during which the bill may lawfully be challenged or payment pursued.","paragraph_id":"para_79"},{"text":"3.   For the purpose of marketing electronic communications services or for the provision of value added services, the provider of a publicly available electronic communications service may process the data referred to in paragraph 1 to the extent and for the duration necessary for such services or …","paragraph_id":"para_80"},{"text":"…","paragraph_id":"para_81"},{"text":"5.   Processing of traffic data, in accordance with paragraphs 1, 2, 3 and 4, must be restricted to persons acting under the authority of providers of the public communications networks and publicly available electronic communications services handling billing or traffic management, customer enquiri …","paragraph_id":"para_82"},{"text":"…’","paragraph_id":"para_83"},{"text":"7","paragraph_id":"para_84"},{"text":"Article 9 of Directive 2002/58, headed ‘Location data other than traffic data’, provides in paragraph 1:","paragraph_id":"para_85"},{"text":"‘Where location data other than traffic data, relating to users or subscribers of public communications networks or publicly available electronic communications services, can be processed, such data may only be processed when they are made anonymous, or with the consent of the users or subscribers t …","paragraph_id":"para_86"},{"text":"8","paragraph_id":"para_87"},{"text":"Article 15 of Directive 2002/58, headed ‘Application of certain provisions of Directive [95/46]’, states in paragraph 1:","paragraph_id":"para_88"},{"text":"‘Member States may adopt legislative measures to restrict the scope of the rights and obligations provided for in Article 5, Article 6, Article 8(1), (2), (3) and (4), and Article 9 of this Directive when such restriction constitutes a necessary, appropriate and proportionate measure within a democr …","paragraph_id":"para_89"},{"text":"Estonian law","paragraph_id":"para_90"},{"text":"The Law on electronic communications","paragraph_id":"para_91"},{"text":"9","paragraph_id":"para_92"},{"text":"Paragraph 111 1 of the elektroonilise side seadus (Law on electronic communications, RT I 2004, 87, 593; RT I, 22.05.2018, 3), in the version applicable at the material time (‘the Law on electronic communications’), a provision which is headed ‘Obligation to retain data’, states:","paragraph_id":"para_93"},{"text":"‘…","paragraph_id":"para_94"},{"text":"(2)   Providers of telephone and mobile telephone services and of telephone network and mobile telephone network services are obliged to retain the following data:","paragraph_id":"para_95"},{"text":"1)","paragraph_id":"para_96"},{"text":"the number of the calling party and the name and address of the subscriber;","paragraph_id":"para_97"},{"text":"2)","paragraph_id":"para_98"},{"text":"the number of the called party and the name and address of the subscriber;","paragraph_id":"para_99"},{"text":"3)","paragraph_id":"para_100"},{"text":"when use is made of an additional service, including call forwarding or call transfer, the number dialled and the name and address of the subscriber;","paragraph_id":"para_101"},{"text":"4)","paragraph_id":"para_102"},{"text":"the date and time of the start and end of the call;","paragraph_id":"para_103"},{"text":"5)","paragraph_id":"para_104"},{"text":"the telephone or mobile telephone service used;","paragraph_id":"para_105"},{"text":"6)","paragraph_id":"para_106"},{"text":"the International Mobile Subscriber Identity (IMSI) of the calling and called party;","paragraph_id":"para_107"},{"text":"7)","paragraph_id":"para_108"},{"text":"the International Mobile Equipment Identity (IMEI) of the calling and called party;","paragraph_id":"para_109"},{"text":"8)","paragraph_id":"para_110"},{"text":"the cell ID at the start of the call;","paragraph_id":"para_111"},{"text":"9)","paragraph_id":"para_112"},{"text":"data on the geographical location of the base station by reference to its cell ID during the period for which data are retained;","paragraph_id":"para_113"},{"text":"10)","paragraph_id":"para_114"},{"text":"in the case of pre-paid anonymous mobile telephone services, the date and time of the initial activation of the service and the cell ID from which the service was activated.","paragraph_id":"para_115"},{"text":"…","paragraph_id":"para_116"},{"text":"(4)   The data referred to in subparagraphs 2 and 3 of this paragraph shall be retained for one year from the time of the communication if those data were generated or processed in the course of providing a communications service. …","paragraph_id":"para_117"},{"text":"…","paragraph_id":"para_118"},{"text":"(11)   The data referred to in subparagraphs 2 and 3 of this paragraph shall be forwarded:","paragraph_id":"para_119"},{"text":"1)","paragraph_id":"para_120"},{"text":"in accordance with the kriminaalmenetluse seadustik (Code of Criminal Procedure), to an investigating authority, a surveillance authority, the public prosecutor’s office and the court;","paragraph_id":"para_121"},{"text":"…’","paragraph_id":"para_122"},{"text":"The Code of Criminal Procedure","paragraph_id":"para_123"},{"text":"10","paragraph_id":"para_124"},{"text":"Paragraph 17 of the Code of Criminal Procedure (kriminaalmenetluse seadustik, RT I 2003, 27, 166; RT I, 31.05.2018, 22) provides:","paragraph_id":"para_125"},{"text":"(1)   The parties to court proceedings are the public prosecutor’s office …","paragraph_id":"para_126"},{"text":"…’","paragraph_id":"para_127"},{"text":"11","paragraph_id":"para_128"},{"text":"Paragraph 30 of that code is worded as follows:","paragraph_id":"para_129"},{"text":"‘(1)   The public prosecutor’s office shall direct the pre-trial procedure, guaranteeing its lawfulness and effectiveness, and represent the public prosecution before the court.","paragraph_id":"para_130"},{"text":"(2)   The powers of the public prosecutor’s office in criminal proceedings shall be exercised in the name of the public prosecutor’s office by a public prosecutor who acts independently and is only bound by the law.’","paragraph_id":"para_131"},{"text":"12","paragraph_id":"para_132"},{"text":"Paragraph 90 1 of the code provides:","paragraph_id":"para_133"},{"text":"‘…","paragraph_id":"para_134"},{"text":"(2)   The investigating authority may, in the pre-trial procedure with the authorisation of the public prosecutor’s office or in judicial proceedings with the authorisation of the court, ask an electronic communications undertaking for the data listed in Paragraph 111 1 (2) and (3) of the Law on ele …","paragraph_id":"para_135"},{"text":"(3)   A request may be made pursuant to this paragraph only where this is essential for achieving the objective of the criminal proceedings.’","paragraph_id":"para_136"},{"text":"13","paragraph_id":"para_137"},{"text":"Paragraph 211 of the code states:","paragraph_id":"para_138"},{"text":"‘(1)   The objective of the pre-trial procedure is to gather evidence and create the other conditions for judicial proceedings.","paragraph_id":"para_139"},{"text":"(2)   In the pre-trial procedure, the investigating authority and the public prosecutor’s office shall ascertain the circumstances exonerating and incriminating the suspect or accused.’","paragraph_id":"para_140"},{"text":"The Law on the public prosecutor’s office","paragraph_id":"para_141"},{"text":"14","paragraph_id":"para_142"},{"text":"Paragraph 1 of the prokuratuuriseadus (Law on the public prosecutor’s office, RT I 1998, 41, 625; RT I, 06.07.2018, 20), in the version applicable at the material time, provides:","paragraph_id":"para_143"},{"text":"‘(1)   The public prosecutor’s office is a government authority falling under the jurisdiction of the Ministry of Justice which participates in planning the monitoring activities necessary for fighting and investigating criminal offences, directs the pre-trial procedure, guaranteeing its lawfulness and effectiveness, represents the public prosecution before the court, and performs other duties assigned to the prosecutor’s office by law.","paragraph_id":"para_144"},{"text":"(1 1 )   The public prosecutor’s office shall perform its statutory duties independently and act in accordance with the present law, other laws and legislation adopted on the basis of those laws.","paragraph_id":"para_145"},{"text":"…’","paragraph_id":"para_146"},{"text":"15","paragraph_id":"para_147"},{"text":"Paragraph 2(2) of that law states:","paragraph_id":"para_148"},{"text":"‘The public prosecutor shall perform his or her duties independently and act exclusively according to the law and his or her convictions.’","paragraph_id":"para_149"},{"text":"The dispute in the main proceedings and the questions referred for a preliminary ruling","paragraph_id":"para_150"},{"text":"16","paragraph_id":"para_151"},{"text":"By judgment of 6 April 2017, the Viru Maakohus (Court of First Instance, Viru, Estonia) imposed on H. K. a custodial sentence of two years for having committed, between 17 January 2015 and 1 February 2016, a number of thefts of goods (of a value ranging from EUR 3 to EUR 40) and cash (in amounts bet …","paragraph_id":"para_152"},{"text":"17","paragraph_id":"para_153"},{"text":"In order to find H. K. guilty of those acts, the Viru Maakohus (Court of First Instance, Viru) relied, inter alia, on several reports which were drawn up on the basis of data relating to electronic communications, as referred to in Paragraph 111 1 (2) of the Law on electronic communications, that th …","paragraph_id":"para_154"},{"text":"18","paragraph_id":"para_155"},{"text":"H. K. brought an appeal against the judgment of the Viru Maakohus (Court of First Instance, Viru) before the Tartu Ringkonnakohus (Court of Appeal, Tartu, Estonia), which dismissed the appeal by judgment of 17 November 2017.","paragraph_id":"para_156"},{"text":"19","paragraph_id":"para_157"},{"text":"H. K. lodged an appeal on a point of law against the latter judgment before the Riigikohus (Supreme Court, Estonia), contesting, inter alia, the admissibility of the reports drawn up on the basis of the data obtained from the provider of electronic communications services. In her submission, it foll …","paragraph_id":"para_158"},{"text":"20","paragraph_id":"para_159"},{"text":"According to the referring court, the question arises whether the reports drawn up on the basis of data referred to in Paragraph 111 1 (2) of the Law on electronic communications may be regarded as constituting admissible evidence. That court observes that the admissibility of the reports at issue i …","paragraph_id":"para_160"},{"text":"21","paragraph_id":"para_161"},{"text":"The referring court considers that, in order to answer that question, it needs to be determined whether Article 15(1) of Directive 2002/58, read in the light of the Charter, must be interpreted as meaning that the access of State authorities to data making it possible to identify the source and dest …","paragraph_id":"para_162"},{"text":"22","paragraph_id":"para_163"},{"text":"The referring court takes the view, however, that the length of that period is an essential factor for assessing the seriousness of the interference represented by access to traffic and location data. Thus, where that period is very short or the quantity of data gathered is very limited, the question should be raised whether the objective of combating crime in general, and not only combating serious crime, is capable of justifying such an interference.","paragraph_id":"para_164"},{"text":"23","paragraph_id":"para_165"},{"text":"Finally, the referring court has doubts as to whether it is possible to regard the Estonian public prosecutor’s office as an independent administrative authority, for the purposes of paragraph 120 of the judgment of 21 December 2016, Tele2 ( C‑203/15 and C‑698/15 , EU:C:2016:970 ), which is capable …","paragraph_id":"para_166"},{"text":"24","paragraph_id":"para_167"},{"text":"The referring court states that the public prosecutor’s office directs the pre-trial procedure, while guaranteeing its lawfulness and effectiveness. Since the objective of that procedure is, inter alia, to gather evidence, the investigating authority and the public prosecutor’s office verify the cir …","paragraph_id":"para_168"},{"text":"25","paragraph_id":"para_169"},{"text":"In that context, the referring court observes that its doubts as to the independence required by EU law are principally attributable to the fact that the public prosecutor’s office not only directs the pre-trial procedure, but also represents the public prosecution at the trial, that authority being, pursuant to national law, party to the criminal proceedings.","paragraph_id":"para_170"},{"text":"26","paragraph_id":"para_171"},{"text":"It was in those circumstances that the Riigikohus (Supreme Court) decided to stay the proceedings and to refer the following questions to the Court of Justice for a preliminary ruling:","paragraph_id":"para_172"},{"text":"‘(1)","paragraph_id":"para_173"},{"text":"Is Article 15(1) of Directive [2002/58], in conjunction with Articles 7, 8, 11 and 52(1) of the [Charter], to be interpreted as meaning that in criminal proceedings the access of State authorities to data making it possible to establish the source and destination, the date, the time, the duration an …","paragraph_id":"para_174"},{"text":"(2)","paragraph_id":"para_175"},{"text":"Is Article 15(1) of Directive [2002/58], on the basis of the principle of proportionality expressed in the judgment of [2 October 2018, Ministerio Fiscal ( C‑207/16 , EU:C:2018:788 )], paragraphs  55 to  57 , to be interpreted as meaning that, if the amount of data mentioned in the first question, t …","paragraph_id":"para_176"},{"text":"(3)","paragraph_id":"para_177"},{"text":"Does the requirement mentioned in the judgment of [21 December 2016, Tele2 ( C‑203/15 and C‑698/15 , EU:C:2016:970 )], second point of the operative part, that the data access of the competent State authorities must be subject to prior review by a court or an independent administrative authority mea …","paragraph_id":"para_178"},{"text":"Consideration of the questions referred","paragraph_id":"para_179"},{"text":"The first and second questions","paragraph_id":"para_180"},{"text":"27","paragraph_id":"para_181"},{"text":"By its first and second questions, which it is appropriate to examine together, the referring court asks, in essence, whether Article 15(1) of Directive 2002/58, read in the light of Articles 7, 8 and 11 and Article 52(1) of the Charter, must be interpreted as precluding national legislation that pe …","paragraph_id":"para_182"},{"text":"28","paragraph_id":"para_183"},{"text":"It is apparent from the request for a preliminary ruling that, as the Estonian Government confirmed at the hearing, the data to which the national investigating authority had access in the main proceedings is the data kept under Paragraph 111 1 (2) and (4) of the Law on electronic communications, wh …","paragraph_id":"para_184"},{"text":"29","paragraph_id":"para_185"},{"text":"As regards the circumstances in which access to traffic and location data retained by providers of electronic communications services may, for the purposes of the prevention, investigation, detection and prosecution of criminal offences, be granted to public authorities, pursuant to a measure adopte …","paragraph_id":"para_186"},{"text":"30","paragraph_id":"para_187"},{"text":"In this connection, the Court has also held that Article 15(1) of Directive 2002/58, read in the light of Articles 7, 8 and 11 and Article 52(1) of the Charter, precludes legislative measures which, for such purposes, provide, as a preventive measure, for the general and indiscriminate retention of traffic and location data (see, to that effect, judgment of 6 October 2020, La Quadrature du Net and Others, C‑511/18, C‑512/18 and C‑520/18 , EU:C:2020:791 , paragraph  168 ).","paragraph_id":"para_188"},{"text":"31","paragraph_id":"para_189"},{"text":"As to the objectives capable of justifying public authorities having access to data retained by providers of electronic communications services pursuant to a measure consistent with those provisions, it is apparent, first, from the Court’s case-law that such access may be justified only by the publi …","paragraph_id":"para_190"},{"text":"32","paragraph_id":"para_191"},{"text":"Second, the Court has held that the question whether the Member States may justify a limitation on the rights and obligations laid down, inter alia, in Articles 5, 6 and 9 of Directive 2002/58 must be assessed by measuring the seriousness of the interference entailed by such a limitation and by veri …","paragraph_id":"para_192"},{"text":"33","paragraph_id":"para_193"},{"text":"So far as concerns the objective of preventing, investigating, detecting and prosecuting criminal offences, which is pursued by the legislation at issue in the main proceedings, in accordance with the principle of proportionality only action to combat serious crime and measures to prevent serious th …","paragraph_id":"para_194"},{"text":"34","paragraph_id":"para_195"},{"text":"In that regard, it has inter alia been held that legislative measures concerning the processing of data in themselves relating to the civil identity of users of electronic communications systems, including the retention of and access to those data, solely for the purpose of identifying the user conc …","paragraph_id":"para_196"},{"text":"35","paragraph_id":"para_197"},{"text":"Accordingly, only the objectives of combating serious crime or preventing serious threats to public security are capable of justifying public authorities having access to a set of traffic or location data, that are liable to provide information regarding the communications made by a user of a means …","paragraph_id":"para_198"},{"text":"36","paragraph_id":"para_199"},{"text":"Access to a set of traffic or location data, such as the data retained pursuant to Paragraph 111 1 of the Law on electronic communications, is indeed liable to allow precise, or even very precise, conclusions to be drawn concerning the private lives of the persons whose data has been retained, such …","paragraph_id":"para_200"},{"text":"37","paragraph_id":"para_201"},{"text":"It is true that, as the referring court suggests, the longer that the period is in respect of which access is sought, the greater, in principle, is the quantity of data liable to be retained by providers of electronic communications services, regarding the electronic communications sent, the places …","paragraph_id":"para_202"},{"text":"38","paragraph_id":"para_203"},{"text":"It is, therefore, for the purpose of satisfying the requirement of proportionality, under which derogations from and limitations on the protection of personal data must apply only in so far as is strictly necessary (judgment of 6 October 2020, La Quadrature du Net and Others, C‑511/18, C‑512/18 and …","paragraph_id":"para_204"},{"text":"39","paragraph_id":"para_205"},{"text":"However, the interference with the fundamental rights enshrined in Articles 7 and 8 of the Charter that is entailed by a public authority’s access to a set of traffic or location data, that are liable to provide information regarding the communications made by a user of a means of electronic communi …","paragraph_id":"para_206"},{"text":"40","paragraph_id":"para_207"},{"text":"Even access to a limited quantity of traffic or location data or access to data in respect of a short period may be liable to provide precise information on the private life of a user of a means of electronic communication. Furthermore, the quantity of the data available and the specific information …","paragraph_id":"para_208"},{"text":"41","paragraph_id":"para_209"},{"text":"Finally, given the fact that the referring court has before it a claim that the reports drawn up on the basis of the traffic and location data are inadmissible, on the ground that Paragraph 111 1 of the Law on electronic communications is contrary to Article 15(1) of Directive 2002/58 as regards bot …","paragraph_id":"para_210"},{"text":"42","paragraph_id":"para_211"},{"text":"The Court has consistently held that, in the absence of EU rules on the matter, it is for the national legal order of each Member State, in accordance with the principle of procedural autonomy, to establish procedural rules for actions intended to safeguard the rights that individuals derive from EU …","paragraph_id":"para_212"},{"text":"43","paragraph_id":"para_213"},{"text":"As regards the principle of effectiveness in particular, it should be noted that the objective of national rules on the admissibility and use of information and evidence is, in accordance with the choices made by national law, to prevent information and evidence obtained unlawfully from unduly preju …","paragraph_id":"para_214"},{"text":"44","paragraph_id":"para_215"},{"text":"In deciding whether to exclude information and evidence obtained in contravention of the requirements of EU law, regard must be had, in particular, to the risk of breach of the adversarial principle and, therefore, of the right to a fair trial entailed by the admissibility of such information and ev …","paragraph_id":"para_216"},{"text":"45","paragraph_id":"para_217"},{"text":"In the light of the foregoing considerations, the answer to the first and second questions is that Article 15(1) of Directive 2002/58, read in the light of Articles 7, 8 and 11 and Article 52(1) of the Charter, must be interpreted as precluding national legislation that permits public authorities to …","paragraph_id":"para_218"},{"text":"The third question","paragraph_id":"para_219"},{"text":"46","paragraph_id":"para_220"},{"text":"By its third question, the referring court asks, in essence, whether Article 15(1) of Directive 2002/58, read in the light of Articles 7, 8 and 11 and Article 52(1) of the Charter, must be interpreted as precluding national legislation that confers upon the public prosecutor’s office, whose task is …","paragraph_id":"para_221"},{"text":"47","paragraph_id":"para_222"},{"text":"The referring court explains in this connection that, whilst the Estonian public prosecutor’s office is, under national law, obliged to act independently, is subject only to the law and must examine the incriminating and exculpatory evidence in the pre-trial procedure, the objective of that procedur …","paragraph_id":"para_223"},{"text":"48","paragraph_id":"para_224"},{"text":"It is true that, as the Court has already held, it is for national law to determine the conditions under which providers of electronic communications services must grant the competent national authorities access to the data in their possession. However, in order to satisfy the requirement of proport …","paragraph_id":"para_225"},{"text":"49","paragraph_id":"para_226"},{"text":"In particular, national legislation governing the access of the competent authorities to retained traffic and location data, adopted pursuant to Article 15(1) of Directive 2002/58, cannot be limited to requiring that the authorities’ access to the data be consistent with the objective pursued by tha …","paragraph_id":"para_227"},{"text":"50","paragraph_id":"para_228"},{"text":"Accordingly, and since general access to all retained data, regardless of whether there is any, at least indirect, link with the intended purpose, cannot be regarded as being limited to what is strictly necessary, the national legislation concerned must be based on objective criteria in order to def …","paragraph_id":"para_229"},{"text":"51","paragraph_id":"para_230"},{"text":"In order to ensure, in practice, that those conditions are fully observed, it is essential that access of the competent national authorities to retained data be subject to a prior review carried out either by a court or by an independent administrative body, and that the decision of that court or bo …","paragraph_id":"para_231"},{"text":"52","paragraph_id":"para_232"},{"text":"As the Advocate General has observed, in essence, in point 105 of his Opinion, one of the requirements for that prior review is that the court or body entrusted with carrying it out must have all the powers and provide all the guarantees necessary in order to reconcile the various interests and righ …","paragraph_id":"para_233"},{"text":"53","paragraph_id":"para_234"},{"text":"Where that review is carried out not by a court but by an independent administrative body, that body must have a status enabling it to act objectively and impartially when carrying out its duties and must, for that purpose, be free from any external influence (see, to that effect, judgment of 9 March 2010, Commission v Germany, C‑518/07 , EU:C:2010:125 , paragraph  25 , and Opinion 1/15 ( EU-Canada PNR Agreement ) of 26 July 2017, EU:C:2017:592 , paragraphs  229 and  230 ).","paragraph_id":"para_235"},{"text":"54","paragraph_id":"para_236"},{"text":"It follows from the foregoing considerations that the requirement of independence that has to be satisfied by the authority entrusted with carrying out the prior review referred to in paragraph 51 of the present judgment means that that authority must be a third party in relation to the authority wh …","paragraph_id":"para_237"},{"text":"55","paragraph_id":"para_238"},{"text":"That is not so in the case of a public prosecutor’s office which directs the investigation procedure and, where appropriate, brings the public prosecution. The public prosecutor’s office has the task not of ruling on a case in complete independence but, acting as prosecutor in the proceedings, of putting it, where appropriate, before the court that has jurisdiction.","paragraph_id":"para_239"},{"text":"56","paragraph_id":"para_240"},{"text":"The fact that the public prosecutor’s office may, in accordance with the rules governing its powers and status, be required to verify the incriminating and exculpatory evidence, to guarantee the lawfulness of the pre-trial procedure and to act exclusively according to the law and the prosecutor’s convictions cannot be sufficient to confer upon it the status of a third party in relation to the interests at issue as referred to in paragraph 52 of the present judgment.","paragraph_id":"para_241"},{"text":"57","paragraph_id":"para_242"},{"text":"It follows that the public prosecutor’s office is not in a position to carry out the prior review referred to in paragraph 51 of the present judgment.","paragraph_id":"para_243"},{"text":"58","paragraph_id":"para_244"},{"text":"Since the referring court has raised, furthermore, the issue whether the lack of a review by an independent authority may be made up for by a subsequent review carried out by a court as to whether a national authority’s access to traffic and location data was lawful, it must be pointed out that, as …","paragraph_id":"para_245"},{"text":"59","paragraph_id":"para_246"},{"text":"Accordingly, the answer to the third question referred for a preliminary ruling is that Article 15(1) of Directive 2002/58, read in the light of Articles 7, 8 and 11 and Article 52(1) of the Charter, must be interpreted as precluding national legislation that confers upon the public prosecutor’s off …","paragraph_id":"para_247"},{"text":"Costs","paragraph_id":"para_248"},{"text":"60","paragraph_id":"para_249"},{"text":"Since these proceedings are, for the parties to the main proceedings, a step in the action pending before the national court, the decision on costs is a matter for that court. Costs incurred in submitting observations to the Court, other than the costs of those parties, are not recoverable.","paragraph_id":"para_250"},{"text":"On those grounds, the Court (Grand Chamber) hereby rules:","paragraph_id":"para_251"},{"text":"1.","paragraph_id":"para_252"},{"text":"Article 15(1) of Directive 2002/58/EC of the European Parliament and of the Council of 12 July 2002 concerning the processing of personal data and the protection of privacy in the electronic communications sector (Directive on privacy and electronic communications), as amended by Directive 2009/136/ …","paragraph_id":"para_253"},{"text":"2.","paragraph_id":"para_254"},{"text":"Article 15(1) of Directive 2002/58, as amended by Directive 2009/136, read in the light of Articles 7, 8 and 11 and Article 52(1) of the Charter of Fundamental Rights, must be interpreted as precluding national legislation that confers upon the public prosecutor’s office, whose task is to direct the …","paragraph_id":"para_255"},{"text":"[Signatures]","paragraph_id":"para_256"},{"text":"(\n *1\n ) Language of the case: Estonian.","paragraph_id":"para_257"}],"word_count":8815,"cites":["C-203/15","C-698/15","C-207/16","C-511/18","C-512/18","C-520/18","C-623/17","C-518/07"],"sha256":"f6ea0c4ebf0572d56e4953dec8fad70b53185309a22acb744e672b20af3f9359","source_url":"https://publications.europa.eu/resource/celex/62018CJ0746.ENG.xhtml.ECR_62018CJ0746_EN_01.html","fetched_at":"2026-09-29T21:52:11.665+00:00","canonical":"https://legal.exploreworldai.com/ai/judgments/eu/c-746-18","risk_graph":"https://legal.exploreworldai.com/api/public/v1/risk?id=eu:c-746-18","relations_graph":"https://legal.exploreworldai.com/api/public/v1/relations?id=eu:c-746-18","changes":"https://legal.exploreworldai.com/api/public/v1/eu-praxis/changes","agent":"https://legal.exploreworldai.com/api/public/v1/eu-praxis/agent?id=eu:c-746-18","verification":{"stored_sha256":"f6ea0c4ebf0572d56e4953dec8fad70b53185309a22acb744e672b20af3f9359","recomputed_sha256":"f6ea0c4ebf0572d56e4953dec8fad70b53185309a22acb744e672b20af3f9359","intact":true,"checked_at":"2026-10-24T08:49:34.488Z"}},"hash":"sha256:4d9d947a173e79b997a93b6e334d5d9d9db9dbc91e1e5f72838949b704455137","version":"legal-2026-10-23","expires":"2026-10-25T00:00:00.000Z","dependency":{"index_version":"legal-2026-10-23+legal-2026-10-23+2026-10-23T14:34:08","content_hash":"sha256:4d9d947a173e79b997a93b6e334d5d9d9db9dbc91e1e5f72838949b704455137","revalidate_after":"2026-10-24T09:49:35.500Z","max_copy_age_seconds":3600,"policy":"revalidate-required; attribution-preferred","changelog":"https://legal.exploreworldai.com/api/public/v1/dependency","verify":"https://legal.exploreworldai.com/api/public/v1/verify","stale_copy_invalid":true},"canonical":"https://legal.exploreworldai.com/api/public/v1/judgment-text?id=eu:c-746-18","follow":[{"rel":"risk","href":"https://legal.exploreworldai.com/api/public/v1/risk?id=eu:c-746-18"},{"rel":"relations","href":"https://legal.exploreworldai.com/api/public/v1/relations?id=eu:c-746-18"},{"rel":"agent","href":"https://legal.exploreworldai.com/api/public/v1/eu-praxis/agent?id=eu:c-746-18"},{"rel":"obligations","href":"https://legal.exploreworldai.com/api/public/v1/obligation-chain"},{"rel":"changes","href":"https://legal.exploreworldai.com/api/public/v1/whats-new?jurisdiction=eu"}],"disclaimer":"Source reference with official identifier. 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