Financial intelligence units fall under the Law Enforcement Directive and may restrict a data subject's right of access only under clear rules, in the Advocate General's view
On 8 October 2026 Advocate General Laila Medina delivered her opinion in Rahapesu Andmebüroo (C-222/25), a reference from the Estonian Supreme Court. The opinion does not bind the Court of Justice, which will rule later.
A data subject asked Estonia's Financial Intelligence Unit whether information about him had been passed to or requested by credit institutions or authorities. He later also asked whether the unit had opened an investigation file on him. The unit refused both requests, citing the confidentiality of its data. It maintained its refusal after the Estonian data protection authority ordered it, by an interim decision, to provide the information.
The Tallinn administrative court then held that the Estonian rule on restricting access did not specify its grounds or duration, and ordered the unit to decide again. The court of appeal found the rule not clear and precise and dismissed the unit's appeal. The unit then appealed to the Supreme Court.
In the Advocate General's view, financial intelligence units working to prevent money laundering and terrorist financing are competent authorities for the purposes of the Law Enforcement Directive, whatever their organisational structure. The Directive uses that term for authorities that act to prevent, investigate, detect or prosecute criminal offences. Their processing for that work therefore falls under the Law Enforcement Directive (Directive 2016/680), not the GDPR.
She considers that a total restriction of access may be compatible with the units' duty of strict confidentiality. Any restriction must, however, be proportionate, limited in scope and duration, and laid down in clear and precise legal rules. In her view, a total restriction lasting until the data are destroyed is precluded where national law does not lay down such rules. She observes that the Estonian framework does not appear to set clear conditions for restricting access, and leaves that assessment to the national court.
Where access is restricted, she considers that the person's rights must be protected indirectly through the supervisory authority, which must be able to hold confidential discussions with the unit. In her view, a unit may refuse access without giving reasons where disclosure would endanger the public interest, but it must then tell the person that they can turn to the supervisory authority. Indirect access means that the person does not see the data themselves, but the supervisory authority checks on their behalf what data the unit holds and whether it processes them lawfully. Under Article 17 of the Law Enforcement Directive, the authority informs the person at least that all necessary checks have taken place.