A tragic failure by the police to save a teenage girl who was abducted
but managed to call the 112 emergency number three times before she was
murdered, led to the adoption of a new Emergency Ordinance in Romania.
The law introduces several measures to improve the 112 system, one of
which is mandatory SIM card registration for all prepaid users.
Currently approximately ten million prepaid SIM cards are used in Romania.
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This is the sixth legislative attempt in the last eight years to pass
legislation for registering SIM card users despite a Constitutional
Court decision in 2014 deeming it illegal. The measure was adopted
through a fast legislative procedure and is supposed to enter into
effect on 1 January 2020.
It seems like the main reason to introduce mandatory SIM card
registration is that authorities want to localise the call to the
emergency number and punish false emergency calls. However, this measure
is not likely to be efficient for the purpose, as anyone who buys a SIM
card could obviously give it to someone else. Another reason is to
identify the caller in real emergency situations, to be able to more
easily locate them and send help.
Romania is one of the few countries in the European Union where calling
the emergency number without a SIM card is not possible. This has been a
deliberate decision taken by Romanian authorities to limit the number of
After the Emergency Ordinance was proposed, EDRi member ApTI, together
with two other Romanian NGOs, launched a petition to the Ombudsman and
the government calling for this law not to be adopted. After civil
society?s calls for a public debate, the Ministry of Communications
organised an oral hearing in which the participants were given no more
than five minutes to express their views, without the possibility to
have an actual dialogue. The Emergency Ordinance was adopted shortly
after the hearing, despite the fact that the Romanian Constitution
explicitly states that laws which affect fundamental rights cannot be
adopted by emergency ordinances (Article 115 of the Romanian Constitution).
What did the court say in 2014?
In 2014, the Constitutional Court held that the ?retention and storage
of data is an obvious limitation of the right to personal data
protection and to the fundamental rights protected by the Constitution
on personal and family privacy, secrecy of correspondence and freedom of
speech? (para. 43 of Decision nr. 461/2014, unofficial translation). The
Court explained that restricting fundamental rights is possible only if
the measure is necessary in a democratic society. The measure must also
be proportionate, and must be applicable without discrimination and
without affecting the essence of the right or liberty.
Collecting and storing the personal data of all citizens who buy prepaid
SIM cards for the mere reason of punishing those who might abusively
call the emergency number seems like a bluntly disproportionate measure
that unjustifiably limits the right to private life. At the same time,
such a measure inverses the presumption of innocence and automatically
assumes that all prepaid SIM card users are potentially guilty.
What?s the current status?
The Ombudsman listened to civil society?s concerns, and challenged the
Ordinance at the Constitutional Court. Together with human rights NGO
APADOR-CH, ApTI is preparing an amicus curiae to support the
In the meantime, the Ordinance moved on to parliamentary approval and
the provisions related to mandatory SIM card registration were rejected
in the Senate, the first chamber to debate the law. The Chamber of
Deputies can still introduce modifications.
Asociatia pentru Tehnologie si Internet (ApTI)
Petition against Emergency Ordinance on mandatory sim card registration
(only in Romanian, 12.08.2019)
ApTI?s response to the public consultation on Emergency Ordinance on
mandatory SIM card registration (only in Romanian, 21.08.2019)
Constitutional Court decision nr. 461/2014 (only in Romanian)
Timeline of legislative initiatives to introduce mandatory SIM card
registration (only in Romanian)
(Contribution by Valentina Pavel, EDRi member ApTI, Romania)