1 Short Thematic Report National intelligence authorities and surveillance in the EU: Fundamental rights safeguards and remedies Legal update Country: Spain Version of 28 July 2016 FRANET contractor: Comillas Pontifical University - University Institute of Studies on Migration Author(s) name(s): Cristina J. Gortázar, Nuria Lores and María José Castaño DISCLAIMER: This document was commissioned under a specific contract as background material for the project on National intelligence authorities and surveillance in the EU: Fundamental rights safeguards and remedies. The information and views contained in the document do not necessarily reflect the views or the official position of the EU Agency for Fundamental Rights. The document is made publicly available for transparency and information purposes only and does not constitute legal advice or legal opinion.
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Short Thematic Report
National intelligence authorities and surveillance in the EU: Fundamental rights safeguards and
remedies
Legal update
Country: Spain Version of 28 July 2016 FRANET contractor: Comillas Pontifical University - University Institute of Studies on Migration Author(s) name(s): Cristina J. Gortázar, Nuria Lores and María José Castaño DISCLAIMER: This document was commissioned under a specific contract as background material for the project on National intelligence authorities and surveillance in the EU: Fundamental rights safeguards and remedies. The information and views contained in the document do not necessarily reflect the views or the official position of the EU Agency for Fundamental Rights. The document is made publicly available for transparency and information purposes only and does not constitute legal advice or legal opinion.
During the reporting period, legislative reforms have been scarce. However, the state of play
regarding the Data Retention Directive will be briefly described, and the reform of the
Criminal Procedure Law will be addressed within this scope. Finally, anti-terrorism
measures are also explained in this section.
a. The question of the Data Retention Directive in Spain.
The Data Detention Directive was implemented by Law 25/2007, of 18 October 2007 on the
retention of data regarding telephone and communication networks1. The Court of Justice of
the European Union (CJEU) in the cases Digital Rights Ireland and Seitlinger and Others2
annulled the Data Detention Directive in 2014, yet the Law on Data Retention regarding
telephone and communication networks remains in force.
Law 9/2014, of 9 May 2014, on Communications3 involves the regulation of
telecommunications which includes the operation of networks providing a service and the
delivery of electronic communications services. Privacy of communications, personal
data protection, rights and public obligations linked to network and electronic
communications services are set out in Chapter III of the Law but, nevertheless, no mention is
made of the Digital Rights Ireland case.
Retained data under Law on data retention regarding telephone and communication networks
could only be transferred to authorised representatives appointed by this legislation, in which
National Intelligence Services (NIS) is expressly mentioned in Article 6 (2) c).
b. Law 13/2015 amending the Criminal Procedure Law strengthening the
procedural guarantees and the regulation of the technological search measures
In 2015, the Spanish Ministry of the Presidency adopted Law 13/2015 amending the
Criminal Procedure Law strengthening the procedural guarantees and the regulation of the
technological research measures4. The issues facing the present law are the following:
2 1 Spain, Ministry of the Presidency (Ministerio de la Presidencia) (2007), Law on data retention regarding
telephone and communication networks (Ley 25/2007, de 18 de octubre, de conservación de datos relativos a las
comunicaciones electrónicas y a las redes públicas de comunicaciones). Press release, 19 October 2007, available
at: https://www.boe.es/buscar/act.php?id=BOE-A-2007-18243 2 Court of Justice of the European Union (CJEU), Digital Rights Ireland and Seitlinger and Others,
Nos. 293/12 and 594/12, 8 April 2014. 3 Spain, Ministry of the Presidency (Ministerio de la Presidencia) (2007), Law on Communications (Ley 9/2014,
de 9 de mayo, General de Telecomunicaciones). Press release, 10 May 2014, available at:
https://www.boe.es/diario_boe/txt.php?id=BOE-A-2014-4950 4 Spain, Ministry of the Presidency (Ministerio de la Presidencia) (2015), Law 13/2015 amending the
Criminal Procedure Law strengthening the procedural guarantees and the regulation of the technological research
measures (Ley Orgánica 13/2015, de 5 de octubre, de modificación de la Ley de Enjuiciamiento Criminal para el
- on the one hand, strengthening the rights due process in accordance with the
requirements of the law of the European Union - specifically Directive 2013/48/EU of
the European Parliament and of the European Council of 22 October 2013 on the
right of access to a lawyer in criminal proceedings and in European arrest warrant
proceedings, and on the right to have a third party informed upon deprivation of
liberty, and to communicate with third persons and with consular authorities while
deprived of liberty5-;
- and on the other hand, the regulation of measures on technological research with
respect for fundamental rights, in particular, regarding economic, social and cultural
rights. Specifically the right to privacy, communications privacy, and
personal data protection are guaranteed by the Spanish Constitution.
In Spain, the legislative framework in surveillance includes the Spanish Constitution. Indeed,
Article 18 (3) of the Spanish Constitution recognises the right of privacy of
communications, and especially of the confidentiality of postal, telegraphic and telephone
communications; except where judicial authority authorises interception of such information.
The methods and cases with the ability to individually terminate this right are set out in
Article 55 (2) and always require judicial intervention and an appropriate level of
parliamentary control. Lastly, the right to effective legal protection is a fundamental right
enshrined in Article 24.
The establishment of new measures on technological investigation is directly related to
surveillance. In this regard, Law 13/2015 modifies Title VIII of the Criminal Procedure Law -
renamed “investigative measures of the rights recognised by Article 18 of the
Spanish Constitution”- and is divided into ten chapters.
The first three chapters contain criminal investigations which have already presented in the
Criminal Procedure Law: “Entering and searching behind closed doors” (Article 545 and
Article 572); “Books and papers searching” (Article 573 and Article 578); and “Detention and
opening of written or telegraphic correspondence” (Article 579 to Article 588). In this last
chapter, some clarifications have been included, such as correspondence by fax, burofax or
postal order. In addition, the crimes for which these investigations can be claimed appear in
Article 579. These are intentional crimes with maximum penalties of over 3 years of prison,
offences committed by a criminal organisation, and terrorist offences. In addition,
Article 579 bis has been introduced on the use of information obtained in a different
proceeding, and casual discoveries due to these criminal investigations.
Chapter IV is the general overview part, setting common provisions applying to all measures
on technological investigation covered by this Law. The Guiding Principles on technological
investigation standards are set forth by the Spanish Constitutional Court on the measures of
technological investigation: suitability, exceptionality, necessity and proportionality
(Article 588 bis a). Formal aspects such as the content of the request, the Court ruling, the
request for the extension, the General rules of the duration (3 months), secrecy, control
measures, how third parties may be affected, the use of information in different proceedings,
and the cessation of the measure, or the destruction of records, are also addressed in this
chapter.
The other measures on technological investigation are provided in the new Chapters V to X.
The interception of telephone and telematic communications is extended to any two-way
telematic communication system -such as WhatsApp,- SMS and covert listening devices (Chapter V, Article 588 ter a) and Article 588 ter m) ; the reception and recording of oral
fortalecimiento de las garantías procesales y la regulación de las medidas de investigación tecnológica). Press
release, 6 October 2015, available at: https://www.boe.es/diario_boe/txt.php?id=BOE-A-2015-10725 5 OJ 2013 L 294 of 6 November 2013, p. 1-12.
At parliamentary level, it should be stressed that, although the committees’ meetings, called
Session's Dairy (Diario de Sesiones) are reproduced in the official web site of the Congress, 7according to Article 96 of the Regulations of the Congress of Deputies,8 the secret
committees are not public, such as the Resources Reserve Committee (Comisión de control de
los créditos destinados a gastos reservados, usually called Comisión de Secretos Oficiales).
Nevertheless, there are verbatim records of the secret hearings in a single copy which is
guarded by the President of the committees whose proceedings shall be regarded as secret.
This copy will be able to be consulted by Deputies but subject to the agreement of the Table
(Art. 96. (2)). In this sense, Deputies at Congress are legally required under the obligation of
discretion and confidentiality set out in Article 16 of the Regulations of the Congress of
Deputies.
The aforementioned Committee of the Spanish Parliament has access to classified matters. It
is specifically mentioned in Article 11 of Act 11/2002, of 6 May, on the National Intelligence
Centre (CNI) – the legal doctrine according to which the CNI shall inform the Spanish
Parliament, through the Committee controlling loans destined to reserved expenditure and
chaired by the President of the Chamber, of appropriate information on the running and
activities of intelligence objectives assigned by the Government, with an annual activity
report, and of the situation and degree of compliance with the objectives mentioned above.
This information is not public and is only available to the members of those members of
Resources Reserve Committee.
In other fields we cite -as an example- one of the articles which makes reference to Snowden,
FBI vs. Apple: the battle for the encryption. This article was published by ELCANO Royal
Institute and basically focuses on the lack of cooperation between the FBI and Apple 9
In the area of the mass media, the impact of the Snowden case has been greater and the
Snowden case was able to appear on newspapers and television, such as the interview
between the journalist, Ana Pastor, and Edward Snowden on the TV show “El objetivo”10.
Finally, the Ombudswoman has no executive power, but a will to influence. It's a mediator
institution between citizens and public administrations. They are neutral and active. They
have got authority (autoritas), but not power (potestas). Despite not having executive power,
they have four powers: turn up to any public office; interview under protest any public
official; interview under protest any person imprisoned; and gain access to any kind of
documents.
5 7 Official web site of the Congress,
http://www.congreso.es/portal/page/portal/Congreso/Congreso/Organos/Comision (Hyperlink was
accessed on 7 July 2016) 8 Spain, Ministry of the Presidency (Ministerio de la Presidencia) (1982), Regulations of the Congress of Deputies
(Resolución de 24 de febrero de 1982 por la que se ordena la publicación en el «Boletín Oficial del Estado» del
nuevo Reglamento del Congreso de los Diputados). Press release, 5 March 1982, available at:
9 Spain, FBI vs. Apple: the battle for the encryption (FBI vs. Apple: la batalla por el cifrado) by Enrique Fojón
Chamorro, 4 March 2016, available at: http://www.blog.rielcano.org/fbi-vs-apple-la-batalla-por-el-cifrado/ 10 Spain, El objetivo interviews Edward Snowden (El objetivo entrevista a Edward Snowden), La Sexta,
In the framework of its activities, the Ombudswoman's office treat complaints by individuals
in relation to activities conducted by the police but not in the NIS. In addition, complaints
received by the Ombudswoman's office concerns the code of criminal procedure with respect
to fundamental rights, such as the one of intimacy, the one of communications privacy, and
the one of one's own image has been very low (1 or 2).
1.2 International intelligence services cooperation
1.2.1 International cooperation between intelligence services
Standards essential for the procedure in transmitting and sharing classified information are
provided for in the agreements for the protection of classified information between Spain and
other countries, and with international organisations. At this point, agreements with the
European Union11, the North Atlantic Treaty Organization (NATO)12, the
European Space Agency (ESA)13, the European Rapid Operational Force (Eurofor)14 and the
Organisation for Joint Armament Cooperation (OCCAR)15 are referred to, among other
agreements.
On the other hand, the National Security Office is the body responsible for representing the
Spanish Intelligence Services in committees and working groups as established by
Norm NS/04 of the National Security Office for the Protection of Classified Information
(Point 5 (2)).16 There is information in this regard at the official
Spanish National Centre of Intelligence web site,17 such as a definition of classified
information or the functions and history of the National Security Office. At this website there
6 11 Spain, Ministry of Foreign Affairs and Cooperation (Ministerio de Asuntos Exteriores y Cooperación) (2015)
Agreement among the member states of the European Union on the protection of classified information (Acuerdo
entre los Estados miembros de la Unión Europea, reunidos en el seno del Consejo, sobre la protección de la
información clasificada intercambiada en interés de la Unión Europea, hecho en Bruselas el 25 de mayo de 2011)
Press release, 25 November 2015, available at: https://www.boe.es/boe/dias/2015/11/25/pdfs/BOE-A-2015-
12736.pdf 12 Spain, Ministry of the Presidency (Ministerio de la Presidencia) (1982), Accession of the Kingdom of Spain to
the North Atlantic Treaty Organization (Instrumento de Adhesión del Reino de España al
Tratado del Atlántico Norte). Press release, 31 May 1982, available at:
http://www.boe.es/buscar/doc.php?id=BOE-A-1982-12535 13 Spain, Ministry of the Presidency (Ministerio de la Presidencia) (2005), Accession of the Kingdom of Spain to
the European Space Agency (Instrumento de Ratificación del Acuerdo entre los Estados parte en el Convenio para
el establecimiento de una Agencia Espacial Europea y la Agencia Espacial Europea para la protección y el
intercambio de información clasificada, hecho en París el 19 de agosto de 2002). Press release, 3 March 2005,
available at: http://www.boe.es/diario_boe/txt.php?id=BOE-A-2005-3510 14 Spain, Ministry of the Presidency (Ministerio de la Presidencia) (2010), Accession of the Kingdom of Spain to
the European Rapid Operational Force (Instrumento de Ratificación del Acuerdo de Seguridad entre la
República Francesa, la República Italiana, la República Portuguesa y el Reino de España para la protección de la
información clasificada de EUROFOR, hecho en Roma el 11 de octubre de 2007). Press release, 2 October 2010,
available at: http://www.boe.es/diario_boe/txt.php?id=BOE-A-2010-15118&lang=en 15 Spain, Ministry of the Presidency (Ministerio de la Presidencia) (2008), Accession of the Kingdom of Spain to
the Organisation for Joint Armament Cooperation (Instrumento de Adhesión de España al Acuerdo de Seguridad
de la OCCAR entre el Gobierno de la República Francesa, el Gobierno de la República Federal de Alemania, el
Gobierno del Reino de Bélgica, el Gobierno de la República Italiana y el Gobierno del Reino Unido de
Gran Bretaña e Irlanda del Norte, hecho en París el 24 de septiembre de 2004). Press release, 1 May 2008,
available at: https://www.boe.es/diario_boe/txt.php?id=BOE-A-2008-7707&lang=gl 16 Spain, Ministry of the Presidency (Ministerio de la Presidencia) (2014), Norm NS/04 of the
National Security Office for the Protection of Classified Information (Normas de la Autoridad Nacional para la
Protección de la Información clasificada). Available at:
19 Spain, Ministry of the Presidency (Ministerio de la Presidencia) (1988), Convention for cooperation on defence
cooperation between Spain and the United States (Convenio entre el Reino de España y los
Estados Unidos de América sobre Cooperación para la Defensa, anejos y canjes de notas anejas al mismo, hecho
en Madrid el 1 de diciembre de 1988). Press release, 6 May 1989, available at:
https://www.boe.es/diario_boe/txt.php?id=BOE-A-1989-10178 20 Spain, Ministry of the Presidency, (Ministerio de la Presidencia) (2000), Protocol of amendment the Convention
for cooperation on defence cooperation between Spain and the United States (Protocolo de 10 de Abril de 2002 de
enmienda del convenio de cooperación para la defensa entre el Reino de España y los
Estados Unidos de América, de 1 de Diciembre de 1988). Press release, 21 February 2003, available at:
surveillance activities, are subject to oversight in Spain. However, reference must be made to
the parliamentary and judicial control on this issue.
It can, therefore, be stated that the parliamentarian body exercise its oversight powers with
regard to data that were originally collected in a foreign country and transferred to the
Spanish NIS on the basis of international cooperation agreements.
1.3 Access to information and surveillance
In Spain, the access to information related to the activity of the national intelligence
authorities and surveillance by individuals is not regulated as a constitutional right in the
Spanish Constitution23, where only mention is made of citizens' access to administrative
files and records in Article 105 b) in order to clarify that this kind of access shall be regulated
by law.
In this sense, the Law 19/2013 on Transparency, Access to Public Information and Good
Governance24 was recently approved with the aim of guaranteeing the citizens' access to
public information. However, under this Law information related to the activity of the
national intelligence authorities and surveillance should not be considered public information,
since in accordance with the Law on Transparency public information should be understood
by contents or documents relating of the activities of bodies and agencies as defined in the
Law (Art. 13). The Spanish Judicial Power, the Spanish Parliament, the Spanish
Tax Agencies and the Spanish Ombudsman are among the bodies and agencies listed in the
Law, which never included the Spanish National Intelligence Centre.
Finally, regarding the access to information by individuals must also be mentioned the
Ombudsman who possess the capabilities to bridge the gap between individuals and public
administrations. In this context, the Ombudsman itself can get access to any kind of
documents on a request of citizen and request information for data (except regarding
classified information collected/processed by the Spanish National Intelligence Centre). The
citizen can access the Ombudsman through various channels. Nowadays, the main one is the
web (there is an online form for complaints). Once the form is received, it is registered and
introduced into the computer system for file management (GEX). From this moment,
according to the Article 22 of the Ombudsman Law,25 the Ombudsman may ask the public
authorities all documents deemed necessary for the development of its function, including
those classified with the nature of secrets in accordance with the law. In the latter case no
remission of such documents shall be agreed by the Council of Ministers and accrediting
certification of the agreement refused must be accompanied. In this context, the law also
allows specific protective measures the Ombudsman understand that a document declared
secret and not referred by the Administration could affect a decisive contribution to conduct
an enquiry, it shall notify the committees of the Congress and the Senate (Article 22 (3).
The Ombudswoman's office is organised into 6 areas of competence: security and justice
(interviewed here); economic activity, equal treatment and migration; education
8 23 Spanish Ministry of the Presidency (Ministerio de la Presidencia) (1978), Spanish Constitution
(Constitucion Española). Press release, 29 December 1978, available at:
https://www.boe.es/buscar/act.php?id=BOE-A-1978-31229 24 Spain, Ministry of the Presidency (Ministerio de la Presidencia) (2013), Law 19/2013 on Transparency, Access
to Public Information and Good Governance (Ley 19/2013, de 9 de diciembre, de transparencia, acceso a la
información pública y buen gobierno). Press release, 10 December 2013, available at: