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Cybercrime@IPA CyberCrime@IPA EU/COE Joint Project on Regional Cooperation against Cybercrime www.coe.int/cybercrime Data Protection and Cybercrime Division Directorate General of Human Rights and Rule of Law Strasbourg, France 29 March 2012 Article 15 Conditions and Safeguards under the Budapest Convention on Cybercrime Discussion paper with contributions by Henrik Kaspersen (Netherlands) Joseph Schwerha (USA) Drazen Dragicevic (Croatia) For further information please contact: Disclaimer: Data Protection and Cybercrime Division This technical report does not necessarily Directorate General of Human Rights and Rule of Law reflect official positions of the Council of Council of Europe Europe or of the European Union or of Strasbourg, France the Parties to the agreements referred to Tel: +33-3-8841-2103 Fax: +33-3-9021-5650 Email: [email protected] www.coe.int/cybercrime 2 CONTENT 1 Background and context.................................................................................................... 4 1.1 Purpose and structure of the report ................................................................................. 4 1.2 Procedural powers provided by the Budapest Convention ................................................... 5 1.3 Conditions and safeguards.............................................................................................. 7 1.3.1 Procedural safeguards under the Budapest Convention .....................................................7 1.3.2 Relevant international human rights standards .............................................................. 10 1.4 Principles and requirements.......................................................................................... 13 2 Henrik Kaspersen: Procedural powers, safeguards and conditions in the Netherlands.... 16 2.1 Introduction to Article 15.............................................................................................. 16 2.1.1 Meaning and purpose................................................................................................. 16 2.1.2 Article 15 explained................................................................................................... 17 2.1.3 Summary................................................................................................................. 19 2.2 Criminal Procedural Law of the Netherlands .................................................................... 19 2.3 Gathering electronic evidence ....................................................................................... 20 2.3.1 Structure of coercive powers....................................................................................... 20 2.3.2 Definitions ............................................................................................................... 21 2.3.3 Search and seizure (Articles 16-19 Cybercrime Convention) ............................................ 21 2.3.4 Implementation of Article 19 Convention on Cybercrime ................................................. 21 2.3.5 Implementation of Article 18 Convention on Cybercrime ................................................. 24 2.3.6 Service Providers and e-communications ...................................................................... 29 2.4 Other legal safeguards ................................................................................................. 31 3 Joseph J. Schwerha: Article 15 from a U.S. perspective................................................... 32 3.1 Introduction................................................................................................................ 32 3.2 Background ................................................................................................................ 32 3.2.1 Context ................................................................................................................... 32 3.2.2 Current U.S. Status ................................................................................................... 33 3.2.3 History and Background of the Budapest Convention ...................................................... 35 3.2.4 History of Article 15................................................................................................... 36 3.2.5 Adjustments in final version of Article 15 ...................................................................... 37 3.2.6 U.S. overarching safeguards and conditions in all criminal proceedings.............................. 38 3.3 Article 15 in relation to specific procedural powers........................................................... 39 3.3.1 Expedited preservation of stored computer data (Article 16)............................................ 39 3.3.2 Expedited preservation and partial disclosure of traffic data (Article 17) ............................ 41 3.3.3 Production Order (article 18) ...................................................................................... 44 3.3.4 Search and seizure of stored computer data (Article 19) ................................................. 46 3.3.5 Real time collection of traffic data (Article 20) and interception of content data (Article 21) .. 49 3.4 Effects on international cooperation ............................................................................... 53 3.5 The future of cyberspace privacy protection? .................................................................. 54 4 Drazen Dragicevic: Conditions and safeguards in Croatia................................................ 57 4.1 Introduction................................................................................................................ 57 4.2 Background and context............................................................................................... 57 4.3 Overview of the implementation of Article 15 in the Croatian legislation ............................. 58 4.3.1 Protection of human rights and liberties in general ......................................................... 58 4.3.2 General approach to data protection and government acquisition of data........................... 59 4.4 Conditions and safeguards in relation to measures concerning computer data in general ...... 60 4.4.1 Search and seizure of computer data (article 19 of the Convention) and preservation of stored computer data (article 16 of the Convention) ................................................................................ 61 4.4.2 Production order (Article 18 of the Convention) ............................................................. 63 4.5 Conditions and safeguards in relation acquisition of data .................................................. 65 4.5.1 Expeditious preservation of traffic data (Articles 16 and 17 of the Convention) ................... 65 4.5.2 Production order for subscriber information (Article 18 of the Convention) ......................... 65 4.5.3 Real-time collection of data ........................................................................................ 66 5 Appendix: ........................................................................................................................ 71 5.1 Extracts of the Budapest Convention and explanatory report............................................. 71 5.1.1 Article 14: Scope of procedural provisions..................................................................... 71 5.1.2 Article 15: Conditions and safeguards .......................................................................... 73 3 1 Background and context 1.1 Purpose and structure of the report The Budapest Convention on Cybercrime not only requires Parties to this treaty to criminalise conduct such as illegal access, data and system interference, child pornography and other offences in their domestic legislation but also to provide their law enforcement authorities with effective tools to investigate cybercrime and collect electronic evidence. According to Article 15, the procedural powers adopted by Parties to the Convention are to be “subject to conditions and safeguards provided for under its domestic law which shall provide for the adequate protection of human rights and liberties...” Article 15 establishes principles and requirements to ensure that governments meet their positive obligation to protect people and their rights against cybercrime while at the same time respecting their fundamental rights when investigating crime. The Council of Europe addresses this question when supporting countries in the implementation of the Budapest Convention through its capacity building programme on cybercrime. This programme includes joint projects of the Council of Europe and the European Union. A major joint project is CyberCrime@IPA on cooperation against cybercrime in South-eastern Europe, covering Albania, Bosnia and Herzegovina, Croatia, Montenegro, Serbia, “The former Yugoslav Republic of Macedonia”, Turkey and Kosovo. 1 CyberCrime@IPA is designed to make sure that policy- and decision-makers are aware of human rights implications when taking measures against cybercrime. Policies, legislation and other measures are to be compliant “with the European Convention on Human Rights, Article 15 of the Budapest Convention and relevant case law of the European Court of Human Rights”. 2 During the inception phase of the project between November 2010 and February 2011, a “situation report” was prepared assessing the state of measures against cybercrime in the eight project areas, including an overview of law enforcement powers
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