{"attribution":{"source":"legal.exploreworldai.com","canonical":"https://legal.exploreworldai.com/api/public/v1/judgment-text?id=eu:c-793-19","cite_as":"NovaCopilot, legal.exploreworldai.com (https://legal.exploreworldai.com/api/public/v1/judgment-text?id=eu:c-793-19)","license":"https://legal.exploreworldai.com/revision","version":"legal-2026-11-02","fingerprint":"ewai:eu:f6410a","proof":"sha256:6483d744f5e08fa6af3f7fa6974ee8abb73ed8c53a83673c0545729b95d61790","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-793-19","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":"62019CJ0793","paragraphs":[]},{"title":"JUDGMENT OF THE COURT (Grand Chamber)","paragraphs":[]},{"title":"20 September 2022 (\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","para_44","para_45","para_46","para_47","para_48","para_49","para_50","para_51"]},{"title":"Judgment","paragraphs":[]},{"title":"1","paragraphs":["para_54"]},{"title":"2","paragraphs":["para_56"]},{"title":"Legal context","paragraphs":[]},{"title":"European Union law","paragraphs":[]},{"title":"Directive 95/46/EC","paragraphs":[]},{"title":"3","paragraphs":["para_61"]},{"title":"4","paragraphs":[]},{"title":"Article 3(2) of Directive 95/46 provided:","paragraphs":["para_64","para_65","para_66","para_67","para_68"]},{"title":"Directive 2002/58","paragraphs":[]},{"title":"5","paragraphs":[]},{"title":"Recitals 2, 6, 7 and 11 of Directive 2002/58 state:","paragraphs":["para_72","para_73","para_74"]},{"title":"(6)","paragraphs":["para_76"]},{"title":"(7)","paragraphs":["para_78","para_79"]},{"title":"(11)","paragraphs":["para_81"]},{"title":"6","paragraphs":[]},{"title":"Article 1 of that directive, entitled ‘Scope and aim’, provides:","paragraphs":["para_84","para_85","para_86"]},{"title":"7","paragraphs":[]},{"title":"Under Article 2 of that directive, entitled ‘Definitions’:","paragraphs":["para_89"]},{"title":"The following definitions shall also apply:","paragraphs":[]},{"title":"(a)","paragraphs":["para_92"]},{"title":"(b)","paragraphs":["para_94"]},{"title":"(c)","paragraphs":["para_96"]},{"title":"(d)","paragraphs":["para_98","para_99"]},{"title":"8","paragraphs":[]},{"title":"Article 3 of Directive 2002/58, headed ‘Services concerned’, provides:","paragraphs":["para_102"]},{"title":"9","paragraphs":[]},{"title":"Article 5 of the directive, headed ‘Confidentiality of the communications’, provides:","paragraphs":["para_105","para_106","para_107"]},{"title":"10","paragraphs":[]},{"title":"Article 6 of Directive 2002/58, entitled ‘Traffic data’, provides:","paragraphs":["para_110","para_111","para_112","para_113","para_114","para_115"]},{"title":"11","paragraphs":["para_117","para_118"]},{"title":"12","paragraphs":["para_120","para_121"]},{"title":"German law","paragraphs":[]},{"title":"The TKG","paragraphs":[]},{"title":"13","paragraphs":["para_125","para_126"]},{"title":"14","paragraphs":[]},{"title":"Under Paragraph 113b of the TKG:","paragraphs":["para_129","para_130","para_131","para_132","para_133"]},{"title":"(2)   Providers of publicly available telecommunications services shall retain:","paragraphs":["para_135","para_136","para_137","para_138","para_139","para_140","para_141","para_142"]},{"title":"(a)","paragraphs":["para_144"]},{"title":"(b)","paragraphs":["para_146"]},{"title":"(c)","paragraphs":["para_148","para_149","para_150","para_151","para_152","para_153","para_154","para_155"]},{"title":"(3)   Providers of publicly available internet access services shall retain:","paragraphs":["para_157","para_158","para_159","para_160","para_161","para_162","para_163","para_164","para_165","para_166"]},{"title":"15","paragraphs":["para_168"]},{"title":"16","paragraphs":[]},{"title":"Under Paragraph 113c(1) and (2) of the TKG:","paragraphs":["para_171","para_172","para_173","para_174","para_175","para_176","para_177"]},{"title":"17","paragraphs":[]},{"title":"Article 113d of the TKG states:","paragraphs":["para_180","para_181","para_182","para_183","para_184","para_185","para_186","para_187","para_188","para_189","para_190"]},{"title":"18","paragraphs":[]},{"title":"Paragraph 113e of the TKG reads as follows:","paragraphs":["para_193","para_194","para_195","para_196","para_197","para_198","para_199","para_200","para_201"]},{"title":"19","paragraphs":["para_203"]},{"title":"The StPO","paragraphs":[]},{"title":"20","paragraphs":["para_206","para_207"]},{"title":"21","paragraphs":["para_209"]},{"title":"The disputes in the main proceedings and the question referred for a preliminary ruling","paragraphs":[]},{"title":"22","paragraphs":["para_212"]},{"title":"23","paragraphs":["para_214"]},{"title":"24","paragraphs":["para_216"]},{"title":"25","paragraphs":["para_218"]},{"title":"26","paragraphs":["para_220"]},{"title":"27","paragraphs":["para_222"]},{"title":"28","paragraphs":["para_224"]},{"title":"29","paragraphs":["para_226"]},{"title":"30","paragraphs":["para_228"]},{"title":"31","paragraphs":["para_230"]},{"title":"32","paragraphs":["para_232"]},{"title":"33","paragraphs":["para_234"]},{"title":"34","paragraphs":["para_236"]},{"title":"35","paragraphs":["para_238"]},{"title":"36","paragraphs":["para_240"]},{"title":"37","paragraphs":["para_242"]},{"title":"38","paragraphs":["para_244"]},{"title":"39","paragraphs":["para_246","para_247"]},{"title":"(1)","paragraphs":["para_249"]},{"title":"(2)","paragraphs":["para_251"]},{"title":"(a)","paragraphs":["para_253"]},{"title":"(b)","paragraphs":["para_255"]},{"title":"(c)","paragraphs":["para_257"]},{"title":"(d)","paragraphs":["para_259"]},{"title":"(i)","paragraphs":["para_261"]},{"title":"(ii)","paragraphs":["para_263"]},{"title":"(iii)","paragraphs":["para_265"]},{"title":"(iv)","paragraphs":["para_267"]},{"title":"(e)","paragraphs":["para_269"]},{"title":"(3)","paragraphs":["para_271"]},{"title":"(a)","paragraphs":["para_273"]},{"title":"(b)","paragraphs":["para_275"]},{"title":"(c)","paragraphs":["para_277"]},{"title":"(d)","paragraphs":["para_279"]},{"title":"(4)","paragraphs":["para_281"]},{"title":"(a)","paragraphs":["para_283"]},{"title":"(b)","paragraphs":["para_285"]},{"title":"(c)","paragraphs":["para_287"]},{"title":"(d)","paragraphs":["para_289"]},{"title":"(5)","paragraphs":["para_291"]},{"title":"(6)","paragraphs":["para_293"]},{"title":"(7)","paragraphs":["para_295"]},{"title":"Procedure before the Court","paragraphs":[]},{"title":"40","paragraphs":["para_298"]},{"title":"41","paragraphs":["para_300"]},{"title":"42","paragraphs":["para_302"]},{"title":"43","paragraphs":["para_304"]},{"title":"44","paragraphs":["para_306"]},{"title":"45","paragraphs":["para_308"]},{"title":"46","paragraphs":["para_310"]},{"title":"Consideration of the question referred","paragraphs":[]},{"title":"47","paragraphs":["para_313"]},{"title":"Applicability of Directive 2002/58","paragraphs":[]},{"title":"48","paragraphs":["para_316"]},{"title":"Interpretation of Article 15(1) of Directive 2002/58","paragraphs":[]},{"title":"The principles drawn from the Court’s case-law","paragraphs":[]},{"title":"49","paragraphs":["para_320"]},{"title":"50","paragraphs":["para_322"]},{"title":"51","paragraphs":["para_324"]},{"title":"52","paragraphs":["para_326"]},{"title":"53","paragraphs":["para_328"]},{"title":"54","paragraphs":["para_330"]},{"title":"55","paragraphs":["para_332"]},{"title":"56","paragraphs":["para_334"]},{"title":"57","paragraphs":["para_336"]},{"title":"58","paragraphs":["para_338"]},{"title":"59","paragraphs":["para_340"]},{"title":"60","paragraphs":["para_342"]},{"title":"61","paragraphs":["para_344"]},{"title":"62","paragraphs":["para_346"]},{"title":"63","paragraphs":["para_348"]},{"title":"64","paragraphs":["para_350"]},{"title":"65","paragraphs":["para_352"]},{"title":"66","paragraphs":["para_354"]},{"title":"67","paragraphs":["para_356"]},{"title":"68","paragraphs":["para_358"]},{"title":"69","paragraphs":["para_360"]},{"title":"70","paragraphs":["para_362"]},{"title":"71","paragraphs":["para_364"]},{"title":"72","paragraphs":["para_366"]},{"title":"73","paragraphs":["para_368"]},{"title":"74","paragraphs":["para_370"]},{"title":"75","paragraphs":["para_372","para_373","para_374","para_375","para_376","para_377","para_378","para_379","para_380","para_381","para_382"]},{"title":"76","paragraphs":["para_384"]},{"title":"77","paragraphs":["para_386"]},{"title":"78","paragraphs":["para_388"]},{"title":"79","paragraphs":["para_390"]},{"title":"80","paragraphs":["para_392"]},{"title":"81","paragraphs":["para_394"]},{"title":"82","paragraphs":["para_396"]},{"title":"83","paragraphs":["para_398"]},{"title":"84","paragraphs":["para_400"]},{"title":"85","paragraphs":["para_402"]},{"title":"86","paragraphs":["para_404"]},{"title":"87","paragraphs":["para_406"]},{"title":"88","paragraphs":["para_408"]},{"title":"89","paragraphs":["para_410"]},{"title":"90","paragraphs":["para_412"]},{"title":"91","paragraphs":["para_414"]},{"title":"92","paragraphs":["para_416"]},{"title":"93","paragraphs":["para_418"]},{"title":"94","paragraphs":["para_420","para_421"]},{"title":"95","paragraphs":["para_423"]},{"title":"96","paragraphs":["para_425"]},{"title":"97","paragraphs":["para_427"]},{"title":"98","paragraphs":["para_429"]},{"title":"99","paragraphs":["para_431"]},{"title":"100","paragraphs":["para_433"]},{"title":"101","paragraphs":["para_435"]},{"title":"102","paragraphs":["para_437"]},{"title":"103","paragraphs":["para_439"]},{"title":"104","paragraphs":["para_441"]},{"title":"105","paragraphs":["para_443"]},{"title":"106","paragraphs":["para_445"]},{"title":"107","paragraphs":["para_447"]},{"title":"108","paragraphs":["para_449"]},{"title":"109","paragraphs":["para_451"]},{"title":"110","paragraphs":["para_453"]},{"title":"111","paragraphs":["para_455"]},{"title":"112","paragraphs":["para_457"]},{"title":"113","paragraphs":["para_459"]},{"title":"114","paragraphs":["para_461"]},{"title":"115","paragraphs":["para_463"]},{"title":"116","paragraphs":["para_465"]},{"title":"117","paragraphs":["para_467"]},{"title":"118","paragraphs":["para_469"]},{"title":"119","paragraphs":["para_471"]},{"title":"120","paragraphs":["para_473"]},{"title":"121","paragraphs":["para_475"]},{"title":"122","paragraphs":["para_477"]},{"title":"123","paragraphs":["para_479"]},{"title":"124","paragraphs":["para_481"]},{"title":"125","paragraphs":["para_483"]},{"title":"Access to data that have been retained in a general and indiscriminate way","paragraphs":[]},{"title":"126","paragraphs":["para_486"]},{"title":"127","paragraphs":["para_488"]},{"title":"128","paragraphs":["para_490"]},{"title":"129","paragraphs":["para_492"]},{"title":"130","paragraphs":["para_494"]},{"title":"131","paragraphs":["para_496","para_497","para_498","para_499","para_500","para_501","para_502","para_503","para_504","para_505","para_506","para_507"]},{"title":"Costs","paragraphs":[]},{"title":"132","paragraphs":["para_510"]},{"title":"On those grounds, the Court (Grand Chamber) hereby rules:","paragraphs":["para_512","para_513","para_514","para_515","para_516","para_517","para_518","para_519","para_520","para_521","para_522","para_523","para_524","para_525","para_526","para_527","para_528"]}],"paragraphs":[{"text":"62019CJ0793","paragraph_id":"para_1"},{"text":"JUDGMENT OF THE COURT (Grand Chamber)","paragraph_id":"para_2"},{"text":"20 September 2022 (\n *1\n )","paragraph_id":"para_3"},{"text":"[Text rectified by order of 27 October 2022]","paragraph_id":"para_4"},{"text":"(Reference for a preliminary ruling – Processing of personal data in the electronic communications sector – Confidentiality of communications – Providers of electronic communications services – General and indiscriminate retention of traffic and location data – Directive 2002/58/EC – Article 15(1) – Charter of Fundamental Rights of the European Union – Articles 6, 7, 8 and 11 and Article 52(1) – Article 4(2) TEU)","paragraph_id":"para_5"},{"text":"In Joined Cases C‑793/19 and C‑794/19,","paragraph_id":"para_6"},{"text":"REQUESTS for a preliminary ruling under Article 267 TFEU from the Bundesverwaltungsgericht (Federal Administrative Court, Germany), made by decisions of 25 September 2019, received at the Court on 29 October 2019, in the proceedings","paragraph_id":"para_7"},{"text":"Bundesrepublik Deutschland , represented by the Bundesnetzagentur für Elektrizität, Gas, Telekommunikation, Post und Eisenbahnen,","paragraph_id":"para_8"},{"text":"v","paragraph_id":"para_9"},{"text":"SpaceNet AG (C‑793/19),","paragraph_id":"para_10"},{"text":"Telekom Deutschland GmbH (C‑794/19),","paragraph_id":"para_11"},{"text":"THE COURT (Grand Chamber),","paragraph_id":"para_12"},{"text":"composed of K. Lenaerts, President, A. Arabadjiev, A. Prechal, S. Rodin, I. Jarukaitis and I. Ziemele, Presidents of Chambers, T. von Danwitz, M. Safjan, F. Biltgen, P.G. Xuereb (Rapporteur), N. Piçarra, L.S. Rossi and A. Kumin, Judges,","paragraph_id":"para_13"},{"text":"Advocate General: M. Campos Sánchez-Bordona,","paragraph_id":"para_14"},{"text":"Registrar: D. Dittert, Head of Unit,","paragraph_id":"para_15"},{"text":"having regard to the written procedure and further to the hearing on 13 September 2021,","paragraph_id":"para_16"},{"text":"after considering the observations submitted on behalf of:","paragraph_id":"para_17"},{"text":"–","paragraph_id":"para_18"},{"text":"the Bundesrepublik Deutschland, represented by the Bundesnetzagentur für Elektrizität, Gas, Telekommunikation, Post und Eisenbahnen, by C. Mögelin, acting as Agent,","paragraph_id":"para_19"},{"text":"–","paragraph_id":"para_20"},{"text":"[As rectified by order of 27 October 2022] SpaceNet AG, by M. Bäcker, Universitätsprofessor,","paragraph_id":"para_21"},{"text":"–","paragraph_id":"para_22"},{"text":"Telekom Deutschland GmbH, by T. Mayen, Rechtsanwalt,","paragraph_id":"para_23"},{"text":"–","paragraph_id":"para_24"},{"text":"the German Government, by J. Möller, F. Halibi, M. Hellmann, D. Klebs and E. Lankenau, acting as Agents,","paragraph_id":"para_25"},{"text":"–","paragraph_id":"para_26"},{"text":"the Danish Government, by M. Jespersen, J. Nymann-Lindegren, V. Pasternak Jørgensen and M. Søndahl Wolff, acting as Agents,","paragraph_id":"para_27"},{"text":"–","paragraph_id":"para_28"},{"text":"the Estonian Government, by A. Kalbus and M. Kriisa, acting as Agents,","paragraph_id":"para_29"},{"text":"–","paragraph_id":"para_30"},{"text":"Ireland, by A. Joyce and J. Quaney, acting as Agents, and by D. Fennelly, Barrister-at-Law, and P. Gallagher, Senior Counsel,","paragraph_id":"para_31"},{"text":"–","paragraph_id":"para_32"},{"text":"the Spanish Government, by L. Aguilera Ruiz, acting as Agent,","paragraph_id":"para_33"},{"text":"–","paragraph_id":"para_34"},{"text":"the French Government, by A. Daniel, D. Dubois, J. Illouz, E. de Moustier and T. Stéhelin, acting as Agents,","paragraph_id":"para_35"},{"text":"–","paragraph_id":"para_36"},{"text":"the Cypriot Government, by I. Neophytou, acting as Agent,","paragraph_id":"para_37"},{"text":"–","paragraph_id":"para_38"},{"text":"the Netherlands Government, by M.K. Bulterman, A. Hanje and C.S. Schillemans, acting as Agents,","paragraph_id":"para_39"},{"text":"–","paragraph_id":"para_40"},{"text":"the Polish Government, by B. Majczyna, D. Lutostańska and J. Sawicka, acting as Agents,","paragraph_id":"para_41"},{"text":"–","paragraph_id":"para_42"},{"text":"the Finnish Government, by A. Laine and M. Pere, acting as Agents,","paragraph_id":"para_43"},{"text":"–","paragraph_id":"para_44"},{"text":"the Swedish Government, by H. Eklinder, A. Falk, J. Lundberg, C. Meyer-Seitz, R. Shahsavan Eriksson and H. Shev, acting as Agents,","paragraph_id":"para_45"},{"text":"–","paragraph_id":"para_46"},{"text":"the European Commission, by G. Braun, S.L. Kalėda, H. Kranenborg, M. Wasmeier and F. Wilman, acting as Agents,","paragraph_id":"para_47"},{"text":"–","paragraph_id":"para_48"},{"text":"the European Data Protection Supervisor, by A. Buchta, D. Nardi, N. Stolič and K. Ujazdowski, acting as Agents,","paragraph_id":"para_49"},{"text":"after hearing the Opinion of the Advocate General at the sitting on 18 November 2021,","paragraph_id":"para_50"},{"text":"gives the following","paragraph_id":"para_51"},{"text":"Judgment","paragraph_id":"para_52"},{"text":"1","paragraph_id":"para_53"},{"text":"These requests for a preliminary ruling concern 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 pri …","paragraph_id":"para_54"},{"text":"2","paragraph_id":"para_55"},{"text":"The requests have been made in proceedings between the Bundesrepublik Deutschland (Federal Republic of Germany), represented by the Bundesnetzagentur für Elektrizität, Gas, Telekommunikation, Post und Eisenbahnen (Federal Agency for Electricity, Gas, Telecommunications, Post and Rail Networks, Germa …","paragraph_id":"para_56"},{"text":"Legal context","paragraph_id":"para_57"},{"text":"European Union law","paragraph_id":"para_58"},{"text":"Directive 95/46/EC","paragraph_id":"para_59"},{"text":"3","paragraph_id":"para_60"},{"text":"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 ), was repealed, with effect from 25 May 2018, by Regulation (EU) 2016/679 …","paragraph_id":"para_61"},{"text":"4","paragraph_id":"para_62"},{"text":"Article 3(2) of Directive 95/46 provided:","paragraph_id":"para_63"},{"text":"‘This Directive shall not apply to the processing of personal data:","paragraph_id":"para_64"},{"text":"–","paragraph_id":"para_65"},{"text":"in the course of an activity which falls outside the scope of Community law, such as those provided for by Titles V and VI of the Treaty on European Union and in any case to processing operations concerning public security, defence, State security (including the economic well-being of the State when the processing operation relates to State security matters) and the activities of the State in areas of criminal law,","paragraph_id":"para_66"},{"text":"–","paragraph_id":"para_67"},{"text":"by a natural person in the course of a purely personal or household activity.’","paragraph_id":"para_68"},{"text":"Directive 2002/58","paragraph_id":"para_69"},{"text":"5","paragraph_id":"para_70"},{"text":"Recitals 2, 6, 7 and 11 of Directive 2002/58 state:","paragraph_id":"para_71"},{"text":"‘(2)","paragraph_id":"para_72"},{"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_73"},{"text":"…","paragraph_id":"para_74"},{"text":"(6)","paragraph_id":"para_75"},{"text":"The internet is overturning traditional market structures by providing a common, global infrastructure for the delivery of a wide range of electronic communications services. Publicly available electronic communications services over the internet open new possibilities for users but also new risks for their personal data and privacy.","paragraph_id":"para_76"},{"text":"(7)","paragraph_id":"para_77"},{"text":"In the case of public communications networks, specific legal, regulatory and technical provisions should be made in order to protect fundamental rights and freedoms of natural persons and legitimate interests of legal persons, in particular with regard to the increasing capacity for automated storage and processing of data relating to subscribers and users.","paragraph_id":"para_78"},{"text":"…","paragraph_id":"para_79"},{"text":"(11)","paragraph_id":"para_80"},{"text":"Like [Directive 95/46], this Directive does not address issues of protection of fundamental rights and freedoms related to activities which are not governed by Community law. Therefore it does not alter the existing balance between the individual’s right to privacy and the possibility for Member Sta …","paragraph_id":"para_81"},{"text":"6","paragraph_id":"para_82"},{"text":"Article 1 of that directive, entitled ‘Scope and aim’, provides:","paragraph_id":"para_83"},{"text":"‘1.   This Directive provides for the harmonisation of the national provisions required to ensure an equivalent level of protection of fundamental rights and freedoms, and in particular the right to privacy and confidentiality, with respect to the processing of personal data in the electronic communication sector and to ensure the free movement of such data and of electronic communication equipment and services in the Community.","paragraph_id":"para_84"},{"text":"2.   The provisions of this Directive particularise and complement [Directive 95/46] for the purposes mentioned in paragraph 1. Moreover, they provide for protection of the legitimate interests of subscribers who are legal persons.","paragraph_id":"para_85"},{"text":"3.   This Directive shall not apply to activities which fall outside the scope of [the TFEU], such as those covered by Titles V and VI of the [TEU], and in any case to activities concerning public security, defence, State security (including the economic well-being of the State when the activities relate to State security matters) and the activities of the State in areas of criminal law.’","paragraph_id":"para_86"},{"text":"7","paragraph_id":"para_87"},{"text":"Under Article 2 of that directive, entitled ‘Definitions’:","paragraph_id":"para_88"},{"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_89"},{"text":"The following definitions shall also apply:","paragraph_id":"para_90"},{"text":"(a)","paragraph_id":"para_91"},{"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_92"},{"text":"(b)","paragraph_id":"para_93"},{"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_94"},{"text":"(c)","paragraph_id":"para_95"},{"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_96"},{"text":"(d)","paragraph_id":"para_97"},{"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_98"},{"text":"…’","paragraph_id":"para_99"},{"text":"8","paragraph_id":"para_100"},{"text":"Article 3 of Directive 2002/58, headed ‘Services concerned’, provides:","paragraph_id":"para_101"},{"text":"‘This Directive shall apply to the processing of personal data in connection with the provision of publicly available electronic communications services in public communications networks in the Community, including public communications networks supporting data collection and identification devices.’","paragraph_id":"para_102"},{"text":"9","paragraph_id":"para_103"},{"text":"Article 5 of the directive, headed ‘Confidentiality of the communications’, provides:","paragraph_id":"para_104"},{"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_105"},{"text":"…","paragraph_id":"para_106"},{"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_107"},{"text":"10","paragraph_id":"para_108"},{"text":"Article 6 of Directive 2002/58, entitled ‘Traffic data’, provides:","paragraph_id":"para_109"},{"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_110"},{"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_111"},{"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_112"},{"text":"…","paragraph_id":"para_113"},{"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_114"},{"text":"…’","paragraph_id":"para_115"},{"text":"11","paragraph_id":"para_116"},{"text":"Article 9 of that directive, entitled ‘Location data other than traffic data’, provides, in paragraph 1 thereof:","paragraph_id":"para_117"},{"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_118"},{"text":"12","paragraph_id":"para_119"},{"text":"Article 15 of Directive 2002/58, entitled ‘Application of certain provisions of Directive [95/46]’, provides, in paragraph 1 thereof:","paragraph_id":"para_120"},{"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_121"},{"text":"German law","paragraph_id":"para_122"},{"text":"The TKG","paragraph_id":"para_123"},{"text":"13","paragraph_id":"para_124"},{"text":"Paragraph 113a(1), first sentence, of the Telekommunikationsgesetz (Law on Telecommunications) of 22 June 2004 (BGB1. 2004 I, p. 1190), in the version applicable to the dispute in the main proceedings (‘the TKG’), is worded as follows:","paragraph_id":"para_125"},{"text":"‘The obligations in respect of the retention, use and security of the traffic data defined in Paragraphs 113b to 113g apply to operators which provide publicly available telecommunications services to end users.’","paragraph_id":"para_126"},{"text":"14","paragraph_id":"para_127"},{"text":"Under Paragraph 113b of the TKG:","paragraph_id":"para_128"},{"text":"‘(1)   Operators to which Paragraph 113a(1) applies shall retain data in national territory as follows:","paragraph_id":"para_129"},{"text":"1.","paragraph_id":"para_130"},{"text":"for 10 weeks in the case of the data referred to in subparagraphs 2 and 3;","paragraph_id":"para_131"},{"text":"2.","paragraph_id":"para_132"},{"text":"for four weeks in the case of the location data referred to in subparagraph 4.","paragraph_id":"para_133"},{"text":"(2)   Providers of publicly available telecommunications services shall retain:","paragraph_id":"para_134"},{"text":"1.","paragraph_id":"para_135"},{"text":"the telephone number or other identifier of the calling and called parties as well as, in the case of call switching or forwarding, of every other line involved,","paragraph_id":"para_136"},{"text":"2.","paragraph_id":"para_137"},{"text":"the date and time of the start and end of the communication, stating the time zone,","paragraph_id":"para_138"},{"text":"3.","paragraph_id":"para_139"},{"text":"where different services can be used in the context of the telephone service, information on the service used;","paragraph_id":"para_140"},{"text":"4.","paragraph_id":"para_141"},{"text":"and also, in the case of mobile telephony services,","paragraph_id":"para_142"},{"text":"(a)","paragraph_id":"para_143"},{"text":"the International Mobile Subscriber Identity of the calling and called parties,","paragraph_id":"para_144"},{"text":"(b)","paragraph_id":"para_145"},{"text":"the international identifier of the calling and called terminals,","paragraph_id":"para_146"},{"text":"(c)","paragraph_id":"para_147"},{"text":"in the case of pre-paid services, the date and time of the initial activation of the service, stating the time zone;","paragraph_id":"para_148"},{"text":"5.","paragraph_id":"para_149"},{"text":"and, in the case of internet telephony services, the IP (internet protocol) addresses of the calling and called parties and the allocated identification numbers.","paragraph_id":"para_150"},{"text":"Subparagraph 1 above shall apply mutatis mutandis .","paragraph_id":"para_151"},{"text":"1.","paragraph_id":"para_152"},{"text":"to SMS, multimedia messaging or similar services; in such cases, the information referred to in item 2 of subparagraph 1 shall be replaced by the time of despatch and receipt of the message;","paragraph_id":"para_153"},{"text":"2.","paragraph_id":"para_154"},{"text":"to unanswered calls or calls that are unsuccessful due to intervention on the part of the network manager …","paragraph_id":"para_155"},{"text":"(3)   Providers of publicly available internet access services shall retain:","paragraph_id":"para_156"},{"text":"1.","paragraph_id":"para_157"},{"text":"the IP address allocated to the subscriber for the purposes of using the internet;","paragraph_id":"para_158"},{"text":"2.","paragraph_id":"para_159"},{"text":"the clear identifier of the connection that provides access to the internet and the allocated network identification number;","paragraph_id":"para_160"},{"text":"3.","paragraph_id":"para_161"},{"text":"the date and time of the start and end of internet use from the allocated IP address, stating the time zone.","paragraph_id":"para_162"},{"text":"(4)   Where mobile telephony services are used, the designation of the cell sites used at the start of the communication by the caller and the recipient must be retained. In the case of mobile usage of publicly available internet access services, the designation of the cell sites used at the start o …","paragraph_id":"para_163"},{"text":"(5)   The content of the communication, data on internet sites visited and data from email services may not be retained pursuant to this provision.","paragraph_id":"para_164"},{"text":"(6)   Data underlying the communications referred to in Paragraph 99(2) may not be retained pursuant to this provision. This applies, mutatis mutandis , to telephone communications originating from the entities referred to in Paragraph 99(2). The second to seventh sentences of Paragraph 99(2) apply mutatis mutandis .","paragraph_id":"para_165"},{"text":"…’","paragraph_id":"para_166"},{"text":"15","paragraph_id":"para_167"},{"text":"The communications mentioned in Paragraph 99(2) of the TKG, to which Paragraph 113b(6) of the TKG refers, are communications with persons, authorities and organisations of a social or religious nature which offer solely or essentially telephone assistance in psychological or social emergencies to ca …","paragraph_id":"para_168"},{"text":"16","paragraph_id":"para_169"},{"text":"Under Paragraph 113c(1) and (2) of the TKG:","paragraph_id":"para_170"},{"text":"‘(1)   Data retained pursuant to Paragraph 113b may be:","paragraph_id":"para_171"},{"text":"1.","paragraph_id":"para_172"},{"text":"disclosed to a law enforcement authority, where the authority so requests under a statutory provision which authorises it to collect the data referred to in Paragraph 113b for the purposes of prosecuting particularly serious criminal offences;","paragraph_id":"para_173"},{"text":"2.","paragraph_id":"para_174"},{"text":"disclosed to a security authority of the Länder , where the authority so requests under a statutory provision which authorises it to collect the data referred to in Paragraph 113b for the purposes of preventing a specific risk to a person’s physical integrity, life or freedom or to the continued existence of the Federal State or a Land ;","paragraph_id":"para_175"},{"text":"…","paragraph_id":"para_176"},{"text":"(2)   Data retained pursuant to Paragraph 113b may not be used by persons who are subject to the obligations established in Paragraph 113a(1) for purposes other than those provided for in subparagraph 1.’","paragraph_id":"para_177"},{"text":"17","paragraph_id":"para_178"},{"text":"Article 113d of the TKG states:","paragraph_id":"para_179"},{"text":"‘A party that is subject to an obligation pursuant to Paragraph 113a(1) must ensure that the data retained pursuant to the retention obligation in Paragraph 113b(1) are protected by state-of-the-art technical and organisational measures against unauthorised access and use. These measures shall include, in particular:","paragraph_id":"para_180"},{"text":"1.","paragraph_id":"para_181"},{"text":"use of a particularly secure encryption method;","paragraph_id":"para_182"},{"text":"2.","paragraph_id":"para_183"},{"text":"storage in separate storage facilities that are separate from those designated for normal operational tasks;","paragraph_id":"para_184"},{"text":"3.","paragraph_id":"para_185"},{"text":"storage that provides a high level of protection against cyber-attacks, in isolated data processing computer systems;","paragraph_id":"para_186"},{"text":"4.","paragraph_id":"para_187"},{"text":"measures to ensure that access to the data processing facilities is restricted to persons who have been specially authorised by the party subject to the obligation; and","paragraph_id":"para_188"},{"text":"5.","paragraph_id":"para_189"},{"text":"a requirement for at least two persons who have been specially authorised by the party subject to the obligation to be involved when the data are accessed.’","paragraph_id":"para_190"},{"text":"18","paragraph_id":"para_191"},{"text":"Paragraph 113e of the TKG reads as follows:","paragraph_id":"para_192"},{"text":"‘(1)   A party that is subject to an obligation pursuant to Paragraph 113a(1) must ensure that all access, in particular the reading, copying, alteration, deletion and blocking of data retained pursuant to the retention obligation under Paragraph 113b(1), is logged for data protection control purposes. The following data must be logged:","paragraph_id":"para_193"},{"text":"1.","paragraph_id":"para_194"},{"text":"the time of access;","paragraph_id":"para_195"},{"text":"2.","paragraph_id":"para_196"},{"text":"the persons accessing the data;","paragraph_id":"para_197"},{"text":"3.","paragraph_id":"para_198"},{"text":"the purpose and nature of the access.","paragraph_id":"para_199"},{"text":"(2)   The log data may not be used for purposes other than data protection control.","paragraph_id":"para_200"},{"text":"(3)   A party that is subject to an obligation pursuant to Paragraph 113a(1) must ensure that the log data are deleted after one year.’","paragraph_id":"para_201"},{"text":"19","paragraph_id":"para_202"},{"text":"In order to ensure a particularly high level of security and quality of data, the Federal Network Agency for Electricity, Gas, Telecommunications, Post and Railways establishes, in accordance with Paragraph 113f(1) of the TKG, a set of requirements which, pursuant to Paragraph 113f(2) thereof, must …","paragraph_id":"para_203"},{"text":"The StPO","paragraph_id":"para_204"},{"text":"20","paragraph_id":"para_205"},{"text":"The first sentence of Paragraph 100g(2) of the Strafprozessordnung (Code of Criminal Procedure; ‘the StPO’) is worded as follows:","paragraph_id":"para_206"},{"text":"‘Where there is prima facie evidence that someone has been the perpetrator of or an accessory to one of the particularly serious criminal offences referred to in the second sentence or, in those cases where an attempted offence is punishable, that someone has attempted to commit the offence in quest …","paragraph_id":"para_207"},{"text":"21","paragraph_id":"para_208"},{"text":"Paragraph 101a(1) of the StPO establishes that judicial authorisation is required for the collection of traffic data pursuant to Paragraph 100g thereof. Under Paragraph 101a(2) of the StPO, the grounds of the judicial decision must include essential considerations relating to the necessity and appropriateness of the measure in the particular case in question. Paragraph 101a(6) of the StPO lays down an obligation to inform the participants in the telecommunications concerned.","paragraph_id":"para_209"},{"text":"The disputes in the main proceedings and the question referred for a preliminary ruling","paragraph_id":"para_210"},{"text":"22","paragraph_id":"para_211"},{"text":"SpaceNet and Telekom Deutschland provide publicly available internet access services in Germany. The latter also provides publicly available telephone services in Germany.","paragraph_id":"para_212"},{"text":"23","paragraph_id":"para_213"},{"text":"Those service providers brought proceedings before the Verwaltungsgericht Köln (Administrative Court, Cologne, Germany), challenging the obligation imposed on them by the combined provisions of Paragraph 113a(1) and Paragraph 113b of the TKG to retain traffic and location data relating to their customers’ telecommunications as from 1 July 2017.","paragraph_id":"para_214"},{"text":"24","paragraph_id":"para_215"},{"text":"By judgments of 20 April 2018, the Verwaltungsgericht Köln (Administrative Court, Cologne) held that SpaceNet and Telekom Deutschland were not required to retain the traffic data relating to the telecommunications, referred to in Paragraph 113b(3) of the TKG, of the customers to whom they provide in …","paragraph_id":"para_216"},{"text":"25","paragraph_id":"para_217"},{"text":"The Federal Republic of Germany brought appeals on a point of law against those judgments before the Bundesverwaltungsgericht (Federal Administrative Court, Germany), the referring court.","paragraph_id":"para_218"},{"text":"26","paragraph_id":"para_219"},{"text":"The referring court considers that the question whether the retention obligation imposed by the combined provisions of Paragraph 113a(1) and Paragraph 113b of the TKG is contrary to EU law depends on the interpretation of Directive 2002/58.","paragraph_id":"para_220"},{"text":"27","paragraph_id":"para_221"},{"text":"In that respect, the referring court states that the Court has already established definitively, in the judgment of 21 December 2016, Tele2 Sverige and Watson and Others ( C‑203/15 and C‑698/15 , EU:C:2016:970 ), that rules governing the retention of traffic and location data and access to those data by national authorities fall, in principle, within the scope of Directive 2002/58.","paragraph_id":"para_222"},{"text":"28","paragraph_id":"para_223"},{"text":"It also states that the retention obligation at issue in the main proceedings, since it limits the rights deriving from Article 5(1), Article 6(1) and Article 9(1) of Directive 2002/58, could be justified only on the basis of Article 15(1) of that directive.","paragraph_id":"para_224"},{"text":"29","paragraph_id":"para_225"},{"text":"In that respect, it notes that it follows from the judgment of 21 December 2016, Tele2 Sverige and Watson and Others ( C‑203/15 and C‑698/15 , EU:C:2016:970 ), 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 …","paragraph_id":"para_226"},{"text":"30","paragraph_id":"para_227"},{"text":"According to the referring court, like the national legislation at issue in the cases which gave rise to that judgment, the national legislation at issue in the main proceedings does not require any reason for the retention of the data or any link between the data retained and a criminal offence or …","paragraph_id":"para_228"},{"text":"31","paragraph_id":"para_229"},{"text":"The referring court considers, however, that it cannot be ruled out that the retention obligation at issue in the main proceedings may be justified under Article 15(1) of Directive 2002/58.","paragraph_id":"para_230"},{"text":"32","paragraph_id":"para_231"},{"text":"In the first place, it notes that, contrary to the national legislation at issue in the cases that gave rise to the judgment of 21 December 2016, Tele2 Sverige and Watson and Others ( C‑203/15 and C‑698/15 , EU:C:2016:970 ), the national legislation at issue in the main proceedings does not require …","paragraph_id":"para_232"},{"text":"33","paragraph_id":"para_233"},{"text":"In the second place, that court indicates that Paragraph 113b(1) of the TKG provides for a retention period of 4 weeks for location data and 10 weeks for traffic data, whereas Directive 2006/24/EC of the European Parliament and of the Council of 15 March 2006 on the retention of data generated or pr …","paragraph_id":"para_234"},{"text":"34","paragraph_id":"para_235"},{"text":"According to the referring court, although the exclusion of certain means of communication or certain categories of data and the limitation of the retention period are not sufficient to eliminate all risk of establishing a comprehensive profile of the persons concerned, that risk would be at least considerably reduced in the context of the implementation of the national legislation at issue in the main proceedings.","paragraph_id":"para_236"},{"text":"35","paragraph_id":"para_237"},{"text":"In the third place, that legislation contains strict limitations as regards the protection of retained data and access thereto. Thus, first, it ensures the effective protection of retained data against the risks of abuse and against any unlawful access to those data. Secondly, the data retained can …","paragraph_id":"para_238"},{"text":"36","paragraph_id":"para_239"},{"text":"In the fourth place, the interpretation of Article 15(1) of Directive 2002/58 to the effect that any data retention without a reason is generally incompatible with EU law could conflict with the Member States’ obligation to act, arising from the right to security enshrined in Article 6 of the Charter.","paragraph_id":"para_240"},{"text":"37","paragraph_id":"para_241"},{"text":"In the fifth place, the referring court considers that an interpretation of Article 15 of Directive 2002/58 as precluding the general retention of data would considerably restrict the discretion of the national legislature in an area concerning the prosecution of crimes and public security, which, in accordance with Article 4(2) TEU, remains the sole responsibility of each Member State.","paragraph_id":"para_242"},{"text":"38","paragraph_id":"para_243"},{"text":"In the sixth place, the referring court considers that it is necessary to take into account the case-law of the European Court of Human Rights and notes that that court has held that Article 8 of the Convention for the Protection of Human Rights and Fundamental Freedoms (‘the ECHR’) does not preclud …","paragraph_id":"para_244"},{"text":"39","paragraph_id":"para_245"},{"text":"In those circumstances, the Bundesverwaltungsgericht (Federal Administrative Court) decided to stay the proceedings and to refer the following question to the Court of Justice for a preliminary ruling:","paragraph_id":"para_246"},{"text":"‘In the light of Articles 7, 8 and 11 and Article 52(1) of the [Charter], on the one hand, and of Article 6 of the [Charter] and Article 4 [TEU], on the other hand, is Article 15 of Directive [2002/58] to be interpreted as precluding national legislation which obliges providers of publicly available electronic communications services to retain traffic and location data of end users of those services where:","paragraph_id":"para_247"},{"text":"(1)","paragraph_id":"para_248"},{"text":"that obligation does not require a specific reason in terms of location, time or region,","paragraph_id":"para_249"},{"text":"(2)","paragraph_id":"para_250"},{"text":"the following data are the subject of the retention obligation in the provision of publicly available telephone services – including the transmission of SMS, multimedia messages or similar messages and unanswered or unsuccessful calls:","paragraph_id":"para_251"},{"text":"(a)","paragraph_id":"para_252"},{"text":"the telephone number or other identifier of the calling and called parties as well as, in the case of call switching or forwarding, of every other line involved,","paragraph_id":"para_253"},{"text":"(b)","paragraph_id":"para_254"},{"text":"the date and time of the start and end of the call or – in the case of the transmission of a short message, multimedia message or similar message – the times of dispatch and receipt of the message, and an indication of the relevant time zone,","paragraph_id":"para_255"},{"text":"(c)","paragraph_id":"para_256"},{"text":"information regarding the service used, if different services can be used in the context of the telephone service,","paragraph_id":"para_257"},{"text":"(d)","paragraph_id":"para_258"},{"text":"and also, in the case of mobile telephone services","paragraph_id":"para_259"},{"text":"(i)","paragraph_id":"para_260"},{"text":"the International Mobile Subscriber Identity of the calling and called parties,","paragraph_id":"para_261"},{"text":"(ii)","paragraph_id":"para_262"},{"text":"the international identifier of the calling and called terminal equipment,","paragraph_id":"para_263"},{"text":"(iii)","paragraph_id":"para_264"},{"text":"in the case of pre-paid services, the date and time of the initial activation of the service, and an indication of the relevant time zone,","paragraph_id":"para_265"},{"text":"(iv)","paragraph_id":"para_266"},{"text":"the designations of the cells that were used by the calling and called parties at the beginning of the call,","paragraph_id":"para_267"},{"text":"(e)","paragraph_id":"para_268"},{"text":"in the case of internet telephone services, the Internet Protocol addresses of the calling and the called parties and allocated user IDs,","paragraph_id":"para_269"},{"text":"(3)","paragraph_id":"para_270"},{"text":"the following data are the subject of the retention obligation in the provision of publicly available internet access services:","paragraph_id":"para_271"},{"text":"(a)","paragraph_id":"para_272"},{"text":"the Internet Protocol address allocated to the subscriber for internet use,","paragraph_id":"para_273"},{"text":"(b)","paragraph_id":"para_274"},{"text":"a unique identifier of the connection via which the internet use takes place, as well as an allocated user ID,","paragraph_id":"para_275"},{"text":"(c)","paragraph_id":"para_276"},{"text":"the date and time of the start and end of the internet use at the allocated Internet Protocol address, and an indication of the relevant time zone,","paragraph_id":"para_277"},{"text":"(d)","paragraph_id":"para_278"},{"text":"in the case of mobile use, the designation of the cell used at the start of the internet connection,","paragraph_id":"para_279"},{"text":"(4)","paragraph_id":"para_280"},{"text":"the following data must not be retained:","paragraph_id":"para_281"},{"text":"(a)","paragraph_id":"para_282"},{"text":"the content of the communication,","paragraph_id":"para_283"},{"text":"(b)","paragraph_id":"para_284"},{"text":"data regarding the internet pages accessed,","paragraph_id":"para_285"},{"text":"(c)","paragraph_id":"para_286"},{"text":"data from electronic mail services,","paragraph_id":"para_287"},{"text":"(d)","paragraph_id":"para_288"},{"text":"data underlying links to or from specific connections of persons, authorities and organisations in social or ecclesiastical spheres,","paragraph_id":"para_289"},{"text":"(5)","paragraph_id":"para_290"},{"text":"the retention period is 4 weeks for location data, that is to say, the designation of the cell used, and 10 weeks for the other data,","paragraph_id":"para_291"},{"text":"(6)","paragraph_id":"para_292"},{"text":"effective protection of retained data against risks of abuse and against any unlawful access to those data is ensured, and","paragraph_id":"para_293"},{"text":"(7)","paragraph_id":"para_294"},{"text":"the retained data may be used only to prosecute particularly serious criminal offences and to prevent a specific threat to a person’s physical integrity, life or freedom or to the continued existence of the Federal Republic or of a Land , with the exception of the Internet Protocol address allocated …","paragraph_id":"para_295"},{"text":"Procedure before the Court","paragraph_id":"para_296"},{"text":"40","paragraph_id":"para_297"},{"text":"By decision of the President of the Court of 3 December 2019, Cases C‑793/19 and C‑794/19 were joined for the purposes of the written and oral parts of the procedure and the judgment.","paragraph_id":"para_298"},{"text":"41","paragraph_id":"para_299"},{"text":"By decision of the President of the Court of 14 July 2020, the proceedings in Joined Cases C‑793/19 and C‑794/19 were stayed pursuant to Article 55(1)(b) of the Rules of Procedure of the Court of Justice, pending delivery of the judgment in La Quadrature du Net and Others (C‑511/18, C‑512/18 and C‑520/18).","paragraph_id":"para_300"},{"text":"42","paragraph_id":"para_301"},{"text":"On 6 October 2020, the Court delivered its judgment in La Quadrature du Net and Others ( C‑511/18, C‑512/18 and C‑520/18 , EU:C:2020:791 ), and, on 8 October 2020, the President of the Court ordered the resumption of the proceedings in Joined Cases C‑793/19 and C‑794/19.","paragraph_id":"para_302"},{"text":"43","paragraph_id":"para_303"},{"text":"The referring court, to which the Registry communicated that judgment, stated that it was maintaining its request for a preliminary ruling.","paragraph_id":"para_304"},{"text":"44","paragraph_id":"para_305"},{"text":"In that respect, the referring court first of all noted that the retention obligation provided for by the legislation at issue in the main proceedings concerns a smaller amount of data and a shorter retention period than that provided for by the national legislation at issue in the cases that gave r …","paragraph_id":"para_306"},{"text":"45","paragraph_id":"para_307"},{"text":"Next, it reiterated that the national legislation at issue in the main proceedings ensures the effective protection of retained data against the risks of abuse and unlawful access.","paragraph_id":"para_308"},{"text":"46","paragraph_id":"para_309"},{"text":"Lastly, it indicated that uncertainties remain as regards the question of the compatibility with EU law of the retention of IP addresses, provided for by the national legislation at issue in the main proceedings, due to an inconsistency between paragraphs 155 and 168 of the judgment of 6 October 202 …","paragraph_id":"para_310"},{"text":"Consideration of the question referred","paragraph_id":"para_311"},{"text":"47","paragraph_id":"para_312"},{"text":"By its question, the referring court seeks, in essence, to ascertain whether Article 15(1) of Directive 2002/58, read in the light of Articles 6 to 8 and 11 and Article 52(l) of the Charter and Article 4(2) TEU, must be interpreted as meaning that it precludes a national legislative measure which, w …","paragraph_id":"para_313"},{"text":"Applicability of Directive 2002/58","paragraph_id":"para_314"},{"text":"48","paragraph_id":"para_315"},{"text":"As regards the argument of Ireland and the French, Netherlands, Polish and Swedish Governments that the national legislation at issue in the main proceedings does not fall within the scope of Directive 2002/58, since it was adopted, inter alia, in order to safeguard national security, it is sufficie …","paragraph_id":"para_316"},{"text":"Interpretation of Article 15(1) of Directive 2002/58","paragraph_id":"para_317"},{"text":"The principles drawn from the Court’s case-law","paragraph_id":"para_318"},{"text":"49","paragraph_id":"para_319"},{"text":"It is settled case-law that, in interpreting a provision of EU law, it is necessary not only to refer to its wording but also to consider its context and the objectives of the legislation of which it forms part, and in particular the origin of that legislation (judgment of 5 April 2022, Commissioner of An Garda Síochána and Others, C‑140/20 , EU:C:2022:258 , paragraph  32 and the case-law cited).","paragraph_id":"para_320"},{"text":"50","paragraph_id":"para_321"},{"text":"It is clear from the wording itself of Article 15(1) of Directive 2002/58 that the legislative measures that it authorises Member States to take, under the conditions that it lays down, may seek only ‘to restrict the scope’ of the rights and obligations laid down inter alia in Articles 5, 6 and 9 of Directive 2002/58 (judgment of 5 April 2022, Commissioner of An Garda Síochána and Others, C‑140/20 , EU:C:2022:258 , paragraph  33 ).","paragraph_id":"para_322"},{"text":"51","paragraph_id":"para_323"},{"text":"As regards the system established by that directive of which Article 15(1) forms part, it must be recalled that, pursuant to the first and second sentences of Article 5(1) of that directive, Member States are required to ensure, through their national legislation, the confidentiality of communicatio …","paragraph_id":"para_324"},{"text":"52","paragraph_id":"para_325"},{"text":"In that regard, the Court has already held that Article 5(1) of Directive 2002/58 enshrines the principle of confidentiality of both electronic communications and the related traffic data and requires inter alia that, in principle, persons other than users be prohibited from storing, without those u …","paragraph_id":"para_326"},{"text":"53","paragraph_id":"para_327"},{"text":"That provision reflects the objective pursued by the EU legislature when adopting Directive 2002/58. It is apparent from the Explanatory Memorandum of the Proposal for a Directive of the European Parliament and of the Council concerning the processing of personal data and the protection of privacy i …","paragraph_id":"para_328"},{"text":"54","paragraph_id":"para_329"},{"text":"In adopting Directive 2002/58, the EU legislature gave concrete expression to those rights, so that the users of electronic communications services are entitled to expect, in principle, that their communications and data relating thereto will remain anonymous and may not be recorded, unless they hav …","paragraph_id":"para_330"},{"text":"55","paragraph_id":"para_331"},{"text":"As regards the processing and storage by electronic communications service providers of subscribers’ and users’ traffic data, Article 6 of Directive 2002/58 provides, in paragraph 1, that those data must be erased or made anonymous, when they are no longer needed for the purpose of the transmission …","paragraph_id":"para_332"},{"text":"56","paragraph_id":"para_333"},{"text":"Therefore, Directive 2002/58 does not merely create a framework for access to such data through safeguards to prevent abuse, but also enshrines, in particular, the principle of the prohibition of their storage by third parties (judgment of 5 April 2022, Commissioner of An Garda Síochána and Others, C‑140/20 , EU:C:2022:258 , paragraph  39 ).","paragraph_id":"para_334"},{"text":"57","paragraph_id":"para_335"},{"text":"In so far as Article 15(1) of Directive 2002/58 permits Member States to adopt legislative measures that ‘restrict the scope’ of the rights and obligations laid down inter alia in Articles 5, 6 and 9 of that directive, such as those arising from the principles of confidentiality of communications an …","paragraph_id":"para_336"},{"text":"58","paragraph_id":"para_337"},{"text":"As regards the objectives that are capable of justifying a limitation of the rights and obligations laid down, in particular, in Articles 5, 6 and 9 of Directive 2002/58, the Court has previously held that the list of objectives set out in the first sentence of Article 15(1) of that directive is exh …","paragraph_id":"para_338"},{"text":"59","paragraph_id":"para_339"},{"text":"Furthermore, it is clear from the third sentence in Article 15(1) of Directive 2002/58 that measures taken by the Member States must comply with the general principles of EU law, which include the principle of proportionality, and ensure respect for the fundamental rights guaranteed by the Charter. …","paragraph_id":"para_340"},{"text":"60","paragraph_id":"para_341"},{"text":"It should be made clear, in that regard, that the retention of traffic and location data constitutes, in itself, first, a derogation from the prohibition laid down in Article 5(1) of Directive 2002/58 barring any person other than the users from storing those data, and, secondly, an interference wit …","paragraph_id":"para_342"},{"text":"61","paragraph_id":"para_343"},{"text":"That conclusion is all the more justified since traffic and location data may reveal information on a significant number of aspects of the private life of the persons concerned, including sensitive information such as sexual orientation, political opinions, religious, philosophical, societal or othe …","paragraph_id":"para_344"},{"text":"62","paragraph_id":"para_345"},{"text":"Therefore, first, the retention of traffic and location data for policing purposes is liable, in itself, to infringe the right to respect for communications, enshrined in Article 7 of the Charter, and to deter users of electronic communications systems from exercising their freedom of expression, gu …","paragraph_id":"para_346"},{"text":"63","paragraph_id":"para_347"},{"text":"That being said, in so far as Article 15(1) of Directive 2002/58 allows Member States to introduce the derogations referred to in paragraph 51 to 54 above, that provision reflects the fact that the rights enshrined in Articles 7, 8 and 11 of the Charter are not absolute rights, but must be considere …","paragraph_id":"para_348"},{"text":"64","paragraph_id":"para_349"},{"text":"Thus as regards, in particular, effective action to combat criminal offences committed against, inter alia, minors and other vulnerable persons, it should be borne in mind that positive obligations of the public authorities may result from Article 7 of the Charter, requiring them to adopt legal meas …","paragraph_id":"para_350"},{"text":"65","paragraph_id":"para_351"},{"text":"In view of those different positive obligations, it is therefore necessary to strike a balance between the various interests and rights at issue and to establish a legal framework which enables such a balance to be struck (see, to that effect, judgment of 5 April 2022, Commissioner of An Garda Síochána and Others, C‑140/20 , EU:C:2022:258 , paragraph  50 and the case-law cited).","paragraph_id":"para_352"},{"text":"66","paragraph_id":"para_353"},{"text":"In that context, it is clear from the wording itself of the first sentence of Article 15(1) of Directive 2002/58 that the Member States may adopt a measure derogating from the principle of confidentiality referred to in paragraph 52 above where such a measure is ‘necessary, appropriate and proportio …","paragraph_id":"para_354"},{"text":"67","paragraph_id":"para_355"},{"text":"In that regard, it should be borne in mind that the protection of the fundamental right to privacy requires, according to the settled case-law of the Court, that derogations from and limitations on the protection of personal data must apply only in so far as is strictly necessary. In addition, an ob …","paragraph_id":"para_356"},{"text":"68","paragraph_id":"para_357"},{"text":"More specifically, it follows from the Court’s case-law 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 …","paragraph_id":"para_358"},{"text":"69","paragraph_id":"para_359"},{"text":"In order to satisfy the requirement of proportionality, the national legislation must lay down clear and precise rules governing the scope and application of the measure in question and imposing minimum safeguards, so that the persons whose personal data are affected have sufficient guarantees that …","paragraph_id":"para_360"},{"text":"70","paragraph_id":"para_361"},{"text":"Thus, national legislation requiring the retention of personal data must always meet objective criteria that establish a connection between the data to be retained and the objective pursued (judgment of 5 April 2022, Commissioner of An Garda Síochána and Others, C‑140/20 , EU:C:2022:258 , paragraph  55 and the case-law cited).","paragraph_id":"para_362"},{"text":"71","paragraph_id":"para_363"},{"text":"As regards the public interest objectives that may justify a measure taken pursuant to Article 15(1) of Directive 2002/58, it is clear from the Court’s case-law, in particular the 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 ), that, i …","paragraph_id":"para_364"},{"text":"72","paragraph_id":"para_365"},{"text":"Thus, as regards safeguarding national security, the importance of which exceeds that of the other objectives referred to in Article 15(1) of Directive 2002/58, the Court held that that provision, read in the light of Articles 7, 8, 11 and Article 52(1) of the Charter, does not preclude legislative …","paragraph_id":"para_366"},{"text":"73","paragraph_id":"para_367"},{"text":"As regards the objective of preventing, investigating, detecting and prosecuting criminal offences, the Court held that, in accordance with the principle of proportionality, only action to combat serious crime and measures to prevent serious threats to public security are capable of justifying serio …","paragraph_id":"para_368"},{"text":"74","paragraph_id":"para_369"},{"text":"As regards the objective of combating serious crime, the Court held that national legislation providing, for that purpose, for the general and indiscriminate retention of traffic and location data exceeds the limits of what is strictly necessary and cannot be considered to be justified within a demo …","paragraph_id":"para_370"},{"text":"75","paragraph_id":"para_371"},{"text":"However, the Court specified 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, does not preclude legislative measures that, for the purposes of combating serous crime and preventing serious threats to public security, provide for:","paragraph_id":"para_372"},{"text":"–","paragraph_id":"para_373"},{"text":"the targeted retention of traffic and location data which is limited, on the basis of objective and non-discriminatory factors, according to the categories of persons concerned or using a geographical criterion, for a period that is limited in time to what is strictly necessary, but which may be extended;","paragraph_id":"para_374"},{"text":"–","paragraph_id":"para_375"},{"text":"the general and indiscriminate retention of IP addresses assigned to the source of an internet connection for a period that is limited in time to what is strictly necessary;","paragraph_id":"para_376"},{"text":"–","paragraph_id":"para_377"},{"text":"the general and indiscriminate retention of data relating to the civil identity of users of electronic communications systems; and","paragraph_id":"para_378"},{"text":"–","paragraph_id":"para_379"},{"text":"recourse to an instruction requiring providers of electronic communications services, by means of a decision of the competent authority that is subject to effective judicial review, to undertake, for a specified period of time, the expedited retention (quick freeze) of traffic and location data in the possession of those service providers,","paragraph_id":"para_380"},{"text":"provided that those measures ensure, by means of clear and precise rules, that the retention of data at issue is subject to compliance with the applicable substantive and procedural conditions and that the persons concerned have effective safeguards against the risks of abuse (judgments of 6 October …","paragraph_id":"para_381"},{"text":"A measure providing for general and indiscriminate retention of the majority of traffic and location data for a period of several weeks","paragraph_id":"para_382"},{"text":"76","paragraph_id":"para_383"},{"text":"It is in the light of those governing considerations that the characteristics of the national legislation at issue in the main proceedings, highlighted by the referring court, must be examined.","paragraph_id":"para_384"},{"text":"77","paragraph_id":"para_385"},{"text":"In the first place, as regards the extent of the data retained, it is apparent from the order for reference that, in the context of the provision of telephone services, the retention obligation laid down by that legislation covers, inter alia, the data necessary to identify the source of a communica …","paragraph_id":"para_386"},{"text":"78","paragraph_id":"para_387"},{"text":"Although the national legislation at issue in the main proceedings excludes the content of the communication and the data concerning the websites visited from the retention obligation and requires the retention of the cell site designation only at the beginning of the communication, that was also tr …","paragraph_id":"para_388"},{"text":"79","paragraph_id":"para_389"},{"text":"It must also be noted that, although the legislation at issue in the main proceedings does not cover the data concerning the websites visited, it nevertheless provides for the retention of IP addresses. Since IP addresses may be used, among other things, to track an internet user’s complete clickstr …","paragraph_id":"para_390"},{"text":"80","paragraph_id":"para_391"},{"text":"In addition, and as SpaceNet observed in its written observations, the data relating to electronic mail services, although not covered by the retention obligation laid down by the legislation at issue in the main proceedings, represent only a very small part of the data in question.","paragraph_id":"para_392"},{"text":"81","paragraph_id":"para_393"},{"text":"Thus, as the Advocate General observed, in essence, in point 60 of his Opinion, the retention obligation laid down by the national legislation at issue in the main proceedings applies to a very broad set of traffic and location data which corresponds, in essence, to those which led to the settled case-law referred to in paragraph 78 above.","paragraph_id":"para_394"},{"text":"82","paragraph_id":"para_395"},{"text":"In addition, in response to a question put to it at the hearing, the German Government stated that only 1300 entities were listed on the register of persons, authorities or organisations of a social or religious nature whose electronic communications data are not retained under Paragraph 99(2) and P …","paragraph_id":"para_396"},{"text":"83","paragraph_id":"para_397"},{"text":"It is therefore apparent from the order for reference that the retention of traffic and location data provided for by that national legislation concerns practically the entire population without those persons being, even indirectly, in a situation liable to give rise to criminal prosecutions. Simila …","paragraph_id":"para_398"},{"text":"84","paragraph_id":"para_399"},{"text":"Accordingly, in the light of the case-law cited in paragraph 75 above, a data retention obligation such as that at issue in the main proceedings cannot be regarded as a targeted retention of data, contrary to the submissions of the German Government.","paragraph_id":"para_400"},{"text":"85","paragraph_id":"para_401"},{"text":"In the second place, as regards the data retention period, it follows from the second sentence of Article 15(1) of Directive 2002/58 that the length of the retention period provided for by a national measure imposing a general and indiscriminate retention obligation is indeed a relevant factor, amongst others, in determining whether EU law precludes such a measure, since that sentence requires that that period be ‘limited’.","paragraph_id":"para_402"},{"text":"86","paragraph_id":"para_403"},{"text":"In the present case, it is true that those periods – which amount, according to Paragraph 113b(1) of the TKG, to 4 weeks for location data and to 10 weeks for other data – are significantly shorter that those provided for by the national legislation imposing a general and indiscriminate retention ob …","paragraph_id":"para_404"},{"text":"87","paragraph_id":"para_405"},{"text":"However, as is apparent from the case-law cited in paragraph 61 above, the seriousness of the interference stems from the risk, particularly in view of their number and variety, that the data retained, taken as a whole, may enable very precise conclusions to be drawn concerning the private life of t …","paragraph_id":"para_406"},{"text":"88","paragraph_id":"para_407"},{"text":"Accordingly, the retention of traffic or location data, that are liable to provide information regarding the communications made by a user of a means of electronic communication or regarding the location of the terminal equipment which he or she uses, is in any event serious regardless of the length …","paragraph_id":"para_408"},{"text":"89","paragraph_id":"para_409"},{"text":"Even the retention of a limited quantity of traffic or location data or the retention of those data for a short period are liable to provide very precise information on the private life of a user of a means of electronic communication. Furthermore, the quantity of the data available and the very spe …","paragraph_id":"para_410"},{"text":"90","paragraph_id":"para_411"},{"text":"In the present case, as is apparent from paragraph 77 above and as was confirmed at the hearing, a set of traffic and location data retained for 10 weeks and 4 weeks respectively may allow very precise conclusions to be drawn concerning the private lives of the persons whose data are retained, such …","paragraph_id":"para_412"},{"text":"91","paragraph_id":"para_413"},{"text":"In the third place, as regards the safeguards provided for by the national legislation at issue in the main proceedings, which are intended to protect the retained data against the risks of abuse and against any unlawful access, it must be emphasised that the retention of and access to those data ea …","paragraph_id":"para_414"},{"text":"92","paragraph_id":"para_415"},{"text":"In the fourth and last place, as regards the European Commission’s argument that particularly serious crime could be treated in the same way as a threat to national security, the Court has already held that the objective of protecting national security corresponds to the primary interest in protecti …","paragraph_id":"para_416"},{"text":"93","paragraph_id":"para_417"},{"text":"Unlike crime, even particularly serious crime, a threat to national security must be genuine and present, or, at the very least, foreseeable, which presupposes that sufficiently concrete circumstances have arisen to be able to justify a generalised and indiscriminate measure of retention of traffic …","paragraph_id":"para_418"},{"text":"94","paragraph_id":"para_419"},{"text":"Thus, crime, even of a particularly serious nature, cannot be treated in the same way as a threat to national security. To treat those situations in the same way would be likely to create an intermediate category between national security and public security for the purpose of applying to the latter the requirements inherent in the former (judgment of 5 April 2022, Commissioner of An Garda Síochána and Others, C‑140/20 , EU:C:2022:258 , paragraph  63 ).","paragraph_id":"para_420"},{"text":"The measures providing for targeted retention, expedited retention or retention of IP addresses","paragraph_id":"para_421"},{"text":"95","paragraph_id":"para_422"},{"text":"Several governments, including the French Government, submit that only general and indiscriminate retention enables the efficient achievement of the objectives pursued by the retention measures and the German Government has argued, in essence, that that conclusion is not undermined by the fact that the Member States may have recourse to the targeted retention and expedited retention measures referred to in paragraph 75 above.","paragraph_id":"para_423"},{"text":"96","paragraph_id":"para_424"},{"text":"In that regard, it must be observed, in the first place, that the effectiveness of criminal proceedings generally depends not on a single means of investigation but on all the means of investigation available to the competent national authorities for those purposes (judgment of 5 April 2022, Commissioner of An Garda Síochána and Others, C‑140/20 , EU:C:2022:258 , paragraph  69 ).","paragraph_id":"para_425"},{"text":"97","paragraph_id":"para_426"},{"text":"In the second place, Article 15(1) of Directive 2002/58, read in the light of Articles 7, 8 and 11 and Article 52(1) of the Charter, as interpreted by the case-law recalled in paragraph 75 above, allows Member States to adopt, for the purposes of combating serious crime and preventing serious threat …","paragraph_id":"para_427"},{"text":"98","paragraph_id":"para_428"},{"text":"In that respect, it is common ground that retention of data relating to the civil identity of users of electronic communications systems may contribute to the fight against serious crime to the extent that those data make it possible to identify persons who have used those means in the context of planning or committing an act constituting serious crime (judgment of 5 April 2022, Commissioner of An Garda Síochána and Others, C‑140/20 , EU:C:2022:258 , paragraph  71 ).","paragraph_id":"para_429"},{"text":"99","paragraph_id":"para_430"},{"text":"Directive 2002/58 does not preclude, for the purposes of combating crime in general, the generalised retention of data relating to civil identity. In those circumstances, it must be stated that neither the directive nor any other EU law act precludes national legislation, which has the purpose of co …","paragraph_id":"para_431"},{"text":"100","paragraph_id":"para_432"},{"text":"In addition, it should be recalled that the generalised retention of IP addresses of the source of connection constitutes a serious interference in the fundamental rights enshrined in Articles 7 and 8 of the Charter as those IP addresses may allow precise conclusions to be drawn concerning the priva …","paragraph_id":"para_433"},{"text":"101","paragraph_id":"para_434"},{"text":"In those circumstances, while it is true that a legislative measure providing for the retention of the IP addresses of all natural persons who own terminal equipment permitting access to the internet would catch persons who at first sight have no connection, within the meaning of the case-law cited …","paragraph_id":"para_435"},{"text":"102","paragraph_id":"para_436"},{"text":"In the light of the seriousness of the interference entailed by that retention with the fundamental rights enshrined in Articles 7 and 8 of the Charter, only action to combat serious crime, the prevention of serious threats to public security and the safeguarding of national security are capable of …","paragraph_id":"para_437"},{"text":"103","paragraph_id":"para_438"},{"text":"Thus, contrary to the observations of the referring court, there is no tension between paragraphs 155 and 168 of the 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 ). As the Advocate General observed, in essence, in points 81 and 82 of h …","paragraph_id":"para_439"},{"text":"104","paragraph_id":"para_440"},{"text":"In the third place, as regards legislative measures providing for a targeted retention and an expedited retention of traffic and location data, some of the arguments put forward by the Member States against such measures show a narrower understanding of the scope of those measures than that set out …","paragraph_id":"para_441"},{"text":"105","paragraph_id":"para_442"},{"text":"As regards, first, targeted retention, the Court has held that Article 15(1) of Directive 2002/58 does not preclude national legislation based on objective evidence which makes it possible to target persons whose traffic and location data are likely to reveal a link, at least an indirect one, with s …","paragraph_id":"para_443"},{"text":"106","paragraph_id":"para_444"},{"text":"The Court stated, in that regard, that, while the objective evidence may vary according to the nature of the measures taken for the purposes of prevention, investigation, detection and prosecution of serious crime, the persons thus targeted may, in particular, be persons who have been identified bef …","paragraph_id":"para_445"},{"text":"107","paragraph_id":"para_446"},{"text":"Member States thus have, inter alia, the option of imposing retention measures targeting persons who, on the basis of such an identification, are the subject of an investigation or other measures of current surveillance or of a reference in the national criminal record relating to an earlier convict …","paragraph_id":"para_447"},{"text":"108","paragraph_id":"para_448"},{"text":"Secondly, a targeted measure for the retention of traffic and location data may, at the choice of the national legislature and in strict compliance with the principle of proportionality, also be set using a geographical criterion where the competent national authorities consider, on the basis of obj …","paragraph_id":"para_449"},{"text":"109","paragraph_id":"para_450"},{"text":"It should be borne in mind that, according to that case-law, the competent national authorities may adopt, for areas referred to in the preceding paragraph, a targeted measure of retention using a geographic criterion, such as, inter alia, the average crime rate in a geographical area, without that …","paragraph_id":"para_451"},{"text":"110","paragraph_id":"para_452"},{"text":"In addition and above all, a targeted measure of retention covering places or infrastructures which regularly receive a very high volume of visitors, or strategic places, such as airports, stations, maritime ports or tollbooth areas, allows the competent authorities to collect traffic data and, in p …","paragraph_id":"para_453"},{"text":"111","paragraph_id":"para_454"},{"text":"It should also be noted that the geographic areas covered by such a targeted retention measure may and, where appropriate, must be amended in accordance with changes in the circumstances that justified their selection, thus making it possible to react to developments in the fight against serious cri …","paragraph_id":"para_455"},{"text":"112","paragraph_id":"para_456"},{"text":"As regards the possibility of providing distinctive criteria other than a personal or geographic criterion for the targeted retention of traffic and location data, it is possible that other objective and non-discriminatory criteria may be considered in order to ensure that the scope of a targeted re …","paragraph_id":"para_457"},{"text":"113","paragraph_id":"para_458"},{"text":"In any event, as the Advocate General observed in point 50 of his Opinion, the fact that it may be difficult to provide a detailed definition of the circumstances and conditions under which targeted retention may be carried out is no reason for the Member States, by turning the exception into a rule …","paragraph_id":"para_459"},{"text":"114","paragraph_id":"para_460"},{"text":"As regards, secondly, the expedited retention of traffic and location data processed and stored by providers of electronic communications services on the basis of Articles 5, 6 and 9 of Directive 2002/58 or on the basis of legislative measures taken under Article 15(1) of that directive, it should b …","paragraph_id":"para_461"},{"text":"115","paragraph_id":"para_462"},{"text":"In such a situation, in the light of the balance that must be struck between the rights and interests at issue referred to in paragraphs 65 to 68 above, it is permissible for Member States to provide, in legislation adopted pursuant to Article 15(1) of Directive 2002/58, for the possibility of instr …","paragraph_id":"para_463"},{"text":"116","paragraph_id":"para_464"},{"text":"To the extent that the purpose of that expedited retention no longer corresponds to the purpose for which those data were initially collected and retained and since any processing of data must, under Article 8(2) of the Charter, be consistent with specified purposes, Member States must make clear, i …","paragraph_id":"para_465"},{"text":"117","paragraph_id":"para_466"},{"text":"The Court has stated that a measure of retention of that nature need not be limited to the data of persons who have been identified previously as being a threat to public security or national security of the Member State concerned or of persons specifically suspected of having committed a serious cr …","paragraph_id":"para_467"},{"text":"118","paragraph_id":"para_468"},{"text":"Thus, a legislative measure may authorise the issuing of an instruction to providers of electronic communications services to carry out the expedited retention of traffic and location data, inter alia, of persons with whom, prior to the serious threat to public security arising or a serious crime be …","paragraph_id":"para_469"},{"text":"119","paragraph_id":"para_470"},{"text":"Such expedited retention may, according to the Court’s case-law recalled in paragraph 117 above and under the same conditions as those referred to in that paragraph, also be extended to specific geographic areas, such as the places of the commission of or preparation for the offence or attack on nat …","paragraph_id":"para_471"},{"text":"120","paragraph_id":"para_472"},{"text":"Furthermore, it must be stated that Article 15(1) of Directive 2002/58 does not preclude the competent national authorities from ordering a measure of expedited retention at the first stage of an investigation into a serious threat to public security or a possible serious crime, namely from the time …","paragraph_id":"para_473"},{"text":"121","paragraph_id":"para_474"},{"text":"Again as regards the variety of measures for the retention of traffic and location data referred to in paragraph 75 above, it must be stated that those various measures may, at the choice of the national legislature and subject to the limits of what is strictly necessary, be applied concurrently. Ac …","paragraph_id":"para_475"},{"text":"122","paragraph_id":"para_476"},{"text":"In the fourth and final place, it must be emphasised that the proportionality of the measures adopted pursuant to Article 15(1) of Directive 2002/58 requires, according to the Court’s settled case-law, as recalled in the judgment of 6 October 2020, La Quadrature du Net and Others ( C‑511/18, C‑512/1 …","paragraph_id":"para_477"},{"text":"123","paragraph_id":"para_478"},{"text":"In that context, it should be recalled that, in paragraph 51 of its judgment of 8 April 2014, Digital Rights Ireland and Others ( C‑293/12 and C‑594/12 , EU:C:2014:238 ), the Court held that while the fight against serious crime is indeed of the utmost importance in order to ensure public security a …","paragraph_id":"para_479"},{"text":"124","paragraph_id":"para_480"},{"text":"In the same vein, the Court stated, in paragraph 145 of the 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 ), that even the positive obligations of the Member States which may arise, depending on the circumstances, from Articles 3, 4 and …","paragraph_id":"para_481"},{"text":"125","paragraph_id":"para_482"},{"text":"Furthermore, the judgments of the European Court of Human Rights of 25 May 2021, Big Brother Watch and Others v. the United Kingdom (CE:ECHR:2021:0525JUD005817013), and of 25 May 2021, Centrum för Rättvisa v. Sweden (CE:ECHR:2021:0525JUD003525208), relied on by certain governments at the hearing to …","paragraph_id":"para_483"},{"text":"Access to data that have been retained in a general and indiscriminate way","paragraph_id":"para_484"},{"text":"126","paragraph_id":"para_485"},{"text":"At the hearing, the Danish Government argued that the competent national authorities should be able to access, for the purpose of combating serious crime, traffic and location data that have been retained in a general and indiscriminate way, in accordance with the case-law arising from the judgment …","paragraph_id":"para_486"},{"text":"127","paragraph_id":"para_487"},{"text":"It should be observed, first of all, that authorising access, for the purpose of combating serious crime, to traffic and location data which have been retained in a general and indiscriminate way would make that access depend upon circumstances unrelated to that objective, according to whether or no …","paragraph_id":"para_488"},{"text":"128","paragraph_id":"para_489"},{"text":"As the Court has already held, access to traffic and location data retained by providers of electronic communications services in accordance with a measure taken under Article 15(1) of Directive 2002/58, which must be given effect in full compliance with the conditions resulting from the case-law in …","paragraph_id":"para_490"},{"text":"129","paragraph_id":"para_491"},{"text":"The Danish Government’s argument refers to a situation in which the objective pursued by the access request proposed, namely the fight against serious crime, is of lesser importance in the hierarchy of objectives of public interest than that which justified the retention, namely the safeguarding of …","paragraph_id":"para_492"},{"text":"130","paragraph_id":"para_493"},{"text":"In addition and moreover, in accordance with the case-law recalled in paragraph 74 above, traffic and location data cannot be the object of general and indiscriminate retention for the purpose of combating serious crime and, therefore, access to those data cannot be justified for that same purpose. …","paragraph_id":"para_494"},{"text":"131","paragraph_id":"para_495"},{"text":"In the light of all of the foregoing considerations, the answer to the 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 legislative measures wh …","paragraph_id":"para_496"},{"text":"–","paragraph_id":"para_497"},{"text":"allow, for the purposes of safeguarding national security, recourse to an instruction requiring providers of electronic communications services to retain, generally and indiscriminately, traffic and location data in situations where the Member State concerned is confronted with a serious threat to n …","paragraph_id":"para_498"},{"text":"–","paragraph_id":"para_499"},{"text":"provide, for the purposes of safeguarding national security, combating serious crime and preventing serious threats to public security, for the targeted retention of traffic and location data which is limited, on the basis of objective and non-discriminatory factors, according to the categories of persons concerned or using a geographical criterion, for a period that is limited in time to what is strictly necessary, but which may be extended;","paragraph_id":"para_500"},{"text":"–","paragraph_id":"para_501"},{"text":"provide, for the purposes of safeguarding national security, combating serious crime and preventing serious threats to public security, for the general and indiscriminate retention of IP addresses assigned to the source of an internet connection for a period that is limited in time to what is strictly necessary;","paragraph_id":"para_502"},{"text":"–","paragraph_id":"para_503"},{"text":"provide, for the purposes of safeguarding national security, combating crime and safeguarding public security, for the general and indiscriminate retention of data relating to the civil identity of users of electronic communications systems;","paragraph_id":"para_504"},{"text":"–","paragraph_id":"para_505"},{"text":"allow, for the purposes of combating serious crime and, a fortiori, safeguarding national security, recourse to an instruction requiring providers of electronic communications services, by means of a decision of the competent authority that is subject to effective judicial review, to undertake, for a specified period of time, the expedited retention of traffic and location data in the possession of those service providers,","paragraph_id":"para_506"},{"text":"provided that those measures ensure, by means of clear and precise rules, that the retention of data at issue is subject to compliance with the applicable substantive and procedural conditions and that the persons concerned have effective safeguards against the risks of abuse.","paragraph_id":"para_507"},{"text":"Costs","paragraph_id":"para_508"},{"text":"132","paragraph_id":"para_509"},{"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_510"},{"text":"On those grounds, the Court (Grand Chamber) hereby rules:","paragraph_id":"para_511"},{"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_512"},{"text":"must be interpreted as meaning that:","paragraph_id":"para_513"},{"text":"it precludes national legislative measures which provide, on a preventative basis, for the purposes of combating serious crime and preventing serious threats to public security, for the general and indiscriminate retention of traffic and location data;","paragraph_id":"para_514"},{"text":"it does not preclude legislative measures that:","paragraph_id":"para_515"},{"text":"–","paragraph_id":"para_516"},{"text":"allow, for the purposes of safeguarding national security, recourse to an instruction requiring providers of electronic communications services to retain, generally and indiscriminately, traffic and location data in situations where the Member State concerned is confronted with a serious threat to n …","paragraph_id":"para_517"},{"text":"–","paragraph_id":"para_518"},{"text":"provide, for the purposes of safeguarding national security, combating serious crime and preventing serious threats to public security, for the targeted retention of traffic and location data which is limited, on the basis of objective and non-discriminatory factors, according to the categories of persons concerned or using a geographical criterion, for a period that is limited in time to what is strictly necessary, but which may be extended;","paragraph_id":"para_519"},{"text":"–","paragraph_id":"para_520"},{"text":"provide, for the purposes of safeguarding national security, combating serious crime and preventing serious threats to public security, for the general and indiscriminate retention of IP addresses assigned to the source of an internet connection for a period that is limited in time to what is strictly necessary;","paragraph_id":"para_521"},{"text":"–","paragraph_id":"para_522"},{"text":"provide, for the purposes of safeguarding national security, combating crime and safeguarding public security, for the general and indiscriminate retention of data relating to the civil identity of users of electronic communications systems;","paragraph_id":"para_523"},{"text":"–","paragraph_id":"para_524"},{"text":"allow, for the purposes of combating serious crime and, a fortiori, safeguarding national security, recourse to an instruction requiring providers of electronic communications services, by means of a decision of the competent authority that is subject to effective judicial review, to undertake, for a specified period of time, the expedited retention of traffic and location data in the possession of those service providers,","paragraph_id":"para_525"},{"text":"provided that those measures ensure, by means of clear and precise rules, that the retention of data at issue is subject to compliance with the applicable substantive and procedural conditions and that the persons concerned have effective safeguards against the risks of abuse.","paragraph_id":"para_526"},{"text":"[Signatures]","paragraph_id":"para_527"},{"text":"(\n *1\n ) Language of the case: 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