CNIL Transfer Impact Assessment Guide
CNIL Transfer Impact Assessment Guide
GUIDE
Final version
January 2025
Table of contents
1. Introduction .......................................................................................................................................... 3
2
1. Introduction
1.1 Background
Regardless of their status (public or private, profit-making or non-profit) and their size (multinational or small
and medium-sized enterprises, local or central administrations, artisans or liberal professions), a very large
number of data controllers and data processors are concerned by the issue of data transfers outside the
European Economic Area 1 (EEA). The interpenetration of networks and the development of cross-border
services, in particular with cloud computing, have multiplied the situations in which personal data (hereinafter
sometimes referred to simply as “data”) are processed in whole or in part in third countries which are not subject
to EU law. These situations may thus give rise to transfers under the General Data Protection Regulation 2
(GDPR).
The principle in the GDPR is that, in the event of a transfer, data must continue to benefit from protection
substantially equivalent to that afforded by that text. Recital 101 of the GDPR states that “when personal data
are transferred from the Union to controllers, processors or other recipients in third countries or to international
organisations, the level of protection of natural persons ensured in the Union by this Regulation should not be
undermined”. Chapter V of the GDPR contains specific provisions regarding data transfers.
In its so-called "Schrems II" ruling 3 the Court of Justice of the European Union (CJEU) emphasised the
responsibility4 of exporters and importers to ensure that the processing of personal data is carried out, and
continues to be carried out, in compliance with the level of protection laid down in EU data protection
legislation. According to the Court, exporters are also responsible for suspending the transfer, and/or
terminating the contract if the importer is not, or is no longer, able to comply with its commitments on the
protection of personal data. Thus, exporters relying on the transfer tools listed in Article 46 GDPR for their
transfers of personal data have an obligation to assess the level of protection in third countries of destination
and the need for supplementary measures. Such an assessment is called “Transfer Impact
Assessment” or ‘TIA’.
1The European Economic Area (EEA) is made up of the Member States of the European Union, Norway, Iceland and Liechtenstein in which
the GDPR has become applicable by incorporation into the EEA Agreement.
2Regulation (EU) 2016/679 of the European Parliament and of the Council of 27 April 2016 on the protection of natural persons with regard
to the processing of personal data and on the free movement of such data, and repealing Directive 95/46/EC (General Data Protection
Regulation).
3 Judgment of the Court of Justice of the European Union of 16 July 2020, ‘Schrems II’, C-311/18, InfoCuria,
[Link]
c=first&cid=14906588
4According to the definition of the EDPB, an ‘exporter’ is a controller, joint controller or processor subject to the GDPR for processing,
which discloses by transmission or otherwise makes personal data, subject to this processing, available to an ‘importer’, controller, joint
controller or processor located in a third country (outside the European Economic Area (EEA)), whether or not it is subject to the GDPR for
the processing in question in accordance with Article 3, or whether it is an international organisation. See Guidelines 05/2021 on the
Interplay between the application of Article 3 and the provisions on international transfers as per Chapter V of the GDPR (PDF, 807ko),
EDPB, [Link]
chapter_v_of_the_gdpr_v2_en_0.pdf
3
The objective of a TIA is to assess and document whether the importer will be able to comply with
its obligations as set out in the transfer tool chosen. To this end, the exporter must assess the level of
protection offered by the local legislation and take into account the practices of the authorities in the third
country in view of the intended transfer. Where necessary, the TIA should also assess whether supplementary
measures would make it possible to remedy the shortcomings identified in data protection and ensure the level
required by EU legislation.
5Recommendations 01/2020 on measures that supplement transfer tools to ensure compliance with the EU level of protection of personal
data (version 2.0), EDPB, [Link]
measures-supplement-transfer_en
4
Step 1 enables the exporter to describe the transfer.
Step 2 consists of documenting the tool that will be used to frame the described transfer and the
analysis concluding on whether or not to carry out a TIA.
Step 3 allows the exporter to assess the legislation and practices in force in the country of
destination and to identify whether there are elements that could impinge the effectiveness of the
safeguards provided through the transfer tool used (documented in step 2).
Step 4 consists of identifying the existing security measures (technical, contractual and organisational)
that ensure an adequate level of data protection in the third country, taking into account the transfer
(described in step 1) and the assessment of the third country’s legislation and practices (step 3). If these
measures are not satisfactory, the exporter should identify the supplementary measures that need
to be implemented to ensure that the transferred data enjoy a level of protection in the third country that
is substantially equivalent to that within the EEA.
Step 5 contains a model action plan for the operational implementation of the supplementary measures
identified and possible procedural steps in Step 4.
Finally, step 6 anticipates future re-assessments of the transfer by the exporter.
The description of the transfer (in step 1) and the identification of the transfer tool (in step 2) allow the
characteristics and sensitivity of the transfer to be taken into account in the assessment of the legislation and
practices of the third country and the effectiveness of the transfer tool (in step 3) to implement possible
supplementary measures (in step 4).
Before carrying out a TIA, several elements must be verified. It is recommended to document the analysis.
5
2) The exporter discloses by transmission or otherwise makes the personal data in question available
to another entity (‘the importer’), whether it is a controller, joint controller or processor
3) The importer is based in a third country (non-EEA), whether or not the importer is subject to the
GDPR for the given processing in accordance with Article 3, or the importer is an international
organisation
As recalled by the EDPB8, the concept of “transfer of personal data to a third country or to an international
organisation” only applies to disclosures of personal data where two legally distinct entities (each of them a
controller, joint controller or processor) are involved. Chapter V of the GDPR therefore does not apply to the
transmission or making available of data within the same entity. This means that when an employee of a
controller in the EU remotely accesses a database of their employer from a third country, for example during a
business trip, this does not constitute a transfer within the meaning of the GDPR.
On the contrary, the transmission or making available of data between two separate entities belonging to the
same group may constitute a transfer.9
Remote access from a third country to data stored in the EEA and cloud storage of data outside the EEA
constitute a transfer where those activities are carried out by an entity legally different from that of the exporter.
8 ibid., §20.
9 ibid., §21.
10 “Standard Contractual Clauses (SCC)”, European Commission: [Link]
protection/international-dimension-data-protection/standard-contractual-clauses-scc_en
11“Binding Corporate Rules (BCR)”, European Commission, [Link]
dimension-data-protection/binding-corporate-rules-bcr_en
12 For the full list of countries that have been subject to such decisions, see “Adequacy decisions”, European Commission,
[Link]
13 “Opinion 22/2024 on certain obligations following from the reliance on processor(s) and sub-processor(s)”, EDPB, §92-93,
[Link]
14European Commission, Decision 2002/2/EC of 20 December 2001 establishing, pursuant to Directive 95/46/EC of the European
Parliament and of the Council, the adequate level of protection of personal data provided by the Canadian Personal Information Protection
and Electronic Documents Act, EUR-Lex, [Link]
6
does not concern personal data transferred to broadcasting organisations, newspaper publishers,
communication agencies or other media outlets, persons engaged in professional writing, universities, religious
institutions and political bodies 15) or may concern only certain entities certified in the third country (e.g. entities
certified under the US Adequacy Decision16). Where the transfer of data does not fall within the scope of an
adequacy decision, it is necessary to use one of the tools in Article 46 or to rely on a derogation in Article 49. In
the former case, it is necessary to carry out a TIA.
Adequacy decisions are subject to periodic reviews. It is therefore recommended to regularly check the list of
countries that have been subject to an adequacy decision in case new decisions have been taken or countries
have been removed from the list.
➢ The transfer is based on one of the derogations in Article 49
A TIA will only be needed when one of the tools of Article 46 is used. Consequently, transfers based on one of
the derogations in Article 49 may be carried out without any formality other than compliance with the conditions
for their application laid down in that Article.
As the EDPB points out in its Guidelines 2/2018, “derogations as set out in Article 49 shall not become “the
rule” in practice, but need to be restricted to specific situations and each data exporter needs to ensure that the
transfer meets the strict necessity test"17.
2.3 Qualification of the parties and responsibility for carrying out a TIA
The qualification (controller, joint controller or processor)18 of the different entities involved in the transfer
must be identified, as it determines the allocation of responsibilities and entails different obligations for the
parties. The EDPB has produced Guidelines19 dedicated to these concepts. Information is also available on the
CNIL website.20
The TIA must be carried out by the exporter, whether acting as controller or processor, with the assistance of
the importer. It is primarily the responsibility of the exporter to ensure that the data transferred in the third
country is afforded an essentially equivalent level of protection and therefore to carry out the TIA. Nevertheless,
the importer’s assistance is essential for the implementation of the TIA as it has access to many necessary
information for this assessment and has knowledge of the assessed legislation.
Several cases can be distinguished according to the role of the parties in the processing and their qualification:
European Commission, Implementing Decision 2019/419 of 23 January 2019 pursuant to Regulation (EU) 2016/679 of the European
15
Parliament and of the Council on the adequate protection of personal data provided by Japan under the Personal Information Protection
Act, Article 1, EUR-Lex, [Link]
16European Commission, Implementing Decision (EU) 2023/1795 of 10 July 2023 establishing, in accordance with Regulation (EU)
2016/679 of the European Parliament and of the Council, the adequate level of protection of personal data provided by the EU-US data
protection framework, EUR-Lex, [Link] For the specific case of
the United States, it is recommended to consult “Adéquation des États-Unis : les premières questions-réponses” [in French], CNIL,
[Link]
17 Guidelines 2/2018 on derogations of Article 49 under Regulation 2016/679 (PDF, 733 ko), p.4, EDPB,
[Link]
18Controller (or joint controller): the natural or legal person, public authority, agency or other body which, alone or jointly with others,
determines the purposes and means of the processing of personal data; Processor: natural or legal person, public authority, agency or other
body which processes personal data on behalf of the controller (see Article 4(7) & (8) GDPR).
19See Guidelines 07/2020 on the concepts of controller and processor in the GDPR, EDPB, [Link]
tools/our-documents/guidelines/guidelines-072020-concepts-controller-and-processor-gdpr_en
See for example “Responsable de traitement et sous-traitant : 6 bonnes pratiques pour respecter les données personnelles” [in French],
20
CNIL, [Link]
7
Case 1 - Controller in the EEA acting as an exporter transferring data to a processor acting as an
importer in a third country:
The controller is required to carry out the TIA with the collaboration of the processor. In the context of a
processing relationship, under Article 28(3)(h) GDPR, the processor is required to provide the controller with
information to demonstrate compliance with his obligations. 21 This information may contain any relevant
material enabling the controller to carry out the analysis of local legislation and practices, in particular with
regard to access to data by public authorities.
Concrete evidence on the legislation and practices of the authorities may include, as appropriate, reports on
access to data transferred from the EEA by the authorities of the third country, reports on access requests
received in the past by the data importer or by its processor or by actors in the same sector of activity,
information on the legislation of the third country with translations into the working language of the parties or
information by the competent authorities on the handling of appeals where such appeals are exercised by
nationals of EEA Member States.22
Case 2 - Processor subject to the GDPR acting as an exporter transferring data on behalf of a
controller subject to the GDPR to a sub-processor acting as an importer in a third country:
Verifies (and if Carries out the TIA Helps in carrying out the TIA
necessary completes)
the TIA
In the event that the transfer of the data outside the EEA (in India in the diagram above) is carried out by the
processor (the French company) and not the controller (the German company in the diagram), the processor is
21The EDPB states in its Guidelines 07/2020: ‘The contract shall include details on how often and how the flow of information between the
processor and the controller should take place so that the controller is fully informed as to the details of the processing that are relevant to
demonstrate compliance with the obligations laid down in Article 28 GDPR.”; “The processor should provide all information on how the
processing activity will be carried out on behalf of the controller. Such information should include information on […] data location,
transfers of data, who has access to data and who are the recipients of data, sub- processors used, etc.”
22It is possible to rely on any reliable source such as those cited in Annex 3 of EDPB Recommendations 01/2020 on measures that
supplement transfer tools to ensure compliance with the EU level of protection of personal data, (“Possible sources of information to assess
a third country” in §144), EDPB, [Link]
06/edpb_recommendations_202001vo.2.0_supplementarymeasurestransferstools_en.pdf .
8
acting as an exporter, hence it is its responsibility to ensure the compliance of its transfer and to carry out the
TIA.
Pursuant to Article 28(3)(h) GDPR, the processor (the French company) is required to provide the controller
(the German company) with information to demonstrate compliance with the latter’s obligations, including the
TIA performed. It should be noted that the transmission by the exporting processor (the French company) of a
simple conclusion or an executive summary of its TIA or its assessment on the legislation of the third country,
without the provision of concrete evidence, does not enable it to fulfil its obligations. 23
Furthermore, the final decision on whether or not to engage this processor and its sub-processor (the French
and Indian companies) or to maintain the contractual relationship with them rests with the controller (the
German company) who has the obligation to verify the safeguards offered under Article 28(1) GDPR. The higher
the risk to the rights and freedoms of data subjects, the more important the checks carried out should be.24 This
can be done by relying on the information received from its Processor – including its TIA – and supplementing
it if necessary (e.g. if it is incomplete, inaccurate or raises questions).
Case 3 - Controller subject to the GDPR acting as an exporter transferring data to a controller in
a third country
In the context of a data transfer between a controller subject to the GDPR acting as an exporter and a controller
based in a third country acting as an importer, it is the responsibility of the exporter to ensure that the data
transferred in the third country enjoys a level of protection essentially equivalent to that guaranteed within the
EEA and therefore to carry out the TIA with the help of the importer.
23The EDPB specifies in §96 of his Opinion 22/2024 : “the controller should assess the appropriate safeguards put in place and be attentive
about any problematic legislation that could prevent the sub-processor from complying with the obligations established in its contract
with the initial processor. More specifically, the controller should ensure that such “a transfer impact assessment” is carried out, in line
with the case-law, and as explained in EDPB Recommendations 01/2020. The documentation relating to the appropriate safeguards put
in place, the “transfer impact assessment” and the possible supplementary measures should be produced by the processor/exporter (where
appropriate in collaboration with the processor/importer). The controller can rely on the assessment prepared by the (sub-)processor
and if necessary build on it. For example, where the assessment received by the controller seems incomplete, inaccurate or raises
questions, the controller should ask for additional information, verify the information and complete/correct it if needed, keeping in mind
that the assessment should be in line with EDPB Recommendations 01/2020 and the steps set out therein98. This includes identifying
laws and practices relevant in light of all circumstances of the transfer99 and identifying appropriate supplementary measures if necessary”
24See the executive summary and §60 of EDPB Opinion 22/2024: Where transfers of personal data outside of the EEA take place between
two (sub-)processors, in accordance with the controller’s instructions, the controller is still subject to the duties stemming from Article
28(1) GDPR on ‘sufficient guarantees’, besides the ones under Article 44 to ensure that the level of protection guaranteed by the GDPR is
not undermined by transfers of personal data. The processor/exporter should prepare the relevant documentation, in line with the case-
law and as explained in EDPB Recommendations 01/2020. The controller should assess and be able to show to the competent SA such
documentation. The controller may rely on the documentation or information received from the processor/exporter and if necessary build
on it. The extent and nature of the controller’s duty to assess this documentation may depend on the ground used for the transfer and
whether the transfer constitutes an initial or onward transfer.” The EDPB also states that "SAs should assess whether the controller is
able to demonstrate that the verification of the sufficiency of the guarantees provided by its (sub-)processors has taken place to the
controller’s satisfaction. The controller may choose to rely on the information received from its processor and build on it if needed (for
example, where it seems incomplete, inaccurate or raises questions). More specifically, for processing presenting a high risk to the rights
and freedoms of data subjects, the controller should increase its level of verification in terms of checking the information provided.”
9
2.4 Scope of the TIA and consideration of onward transfers
The first step in carrying out the TIA is to map the data transfers (see step 1 of this guide). This mapping consists
in properly identifying the importer and the third country. It allows the data exporter (and ultimately the
controller, if the transfer is not carried out by itself) to identify the supplementary measures to be put in place
(see steps 4 and 5).
The exporter must take into account in its analysis the entire data flow, including onward
transfers, so that the controller (whether acting as the exporter or not) can assess the risks associated with all
data transfers outside the EEA.25
A TIA may concern a single transfer or a set of transfers. Therefore, the exporter has the choice to document its
analysis within the same or several documents. In the event of a change in the transfer chain, the exporter may
modify the existing analysis or make a new analysis that it links to the pre-existing analyses it has already carried
out. If the exporter is a processor, it must share this information with the controller.
Besides, any onward transfer is subject to compliance by the importer with the obligations set out in the transfer
tool used. If Standard Contractual Clauses (SCCs) 26 have been concluded, the data importer undertakes not to
disclose the personal data to a third party located outside the European Union to the same country as the data
importer or to another non-adequate third country (hereinafter referred to as “onward transfer”), unless the
third party is bound by the SCCs or agrees to be bound by them, under the appropriate module. Otherwise, an
onward transfer by the data importer can only take place if the conditions laid down in the SCCs are met (Module
1, Article 8.7 and 8.8; modules 2 and 3 – Article 8.8) and provided that it complies with its obligations to keep
the documentation necessary to demonstrate its conformity (modules 1 and 3, Article 8.9; Module 2 – Article
8.8).
Italian company
C
Verifies (and if
necessary completes)
the TIA
Transfers Transfers
personal data personal data
on behalf of the C on behalf of the C
Turkish company Singaporean company
Polish company
Subsequent P- 2nd Subsequent P-
P-exporter
importer importer
25In paragraph 97 of its Opinion 22/2024, the EDPB states that “controllers should be able to show documentation relating to such onward
transfers. This means that the controller should receive this information from the (sub-)processors/exporters, showing that the importers
actually comply with the requirements for onward transfers as laid down in the appropriate safeguards instrument.”
26 See the Standard Contractual Clauses published by the European Commission, EUR-Lex, [Link]
[Link]/eli/dec_impl/2021/914/oj
10
2.5 Compliance of the transfer with the principles of the GDPR
A transfer of data, like any other processing, must comply with all the principles of the GDPR. According to
Article 5 GDPR, the controller must (directly if it is the exporter itself or through its processor if the latter is the
exporter) ensure that the transfer is lawful and based on one of the legal bases of Article 6 and, where applicable,
Article 9 GDPR. The data must also be adequate, relevant and limited to what is necessary for the purposes for
which they are processed. It is therefore necessary to ensure that the data transferred are limited to what is
strictly necessary for the purposes pursued by the transfer.
It is also necessary to ensure that data subjects are informed in accordance with Articles 13 and 14 GDPR. It is
preferable, where possible, to disclose or transmit anonymised data in place of personal data, while ensuring
that the anonymisation process is used effectively identification according to EDPB’s Guidelines.27 In this case,
the GDPR does not apply.
To complete the table below, it is possible to use pre-existing internal documentation, such as the record of
processing activities or the contract governing the transfer.
It is also possible to ask this information to the data importer.
Exporter
27For more details on anonymisation, see Article 29 Working Party (G29), Opinion 05/2014 on Anonymisation Techniques (PDF, 721 ko),
European Commission, [Link] ; as
well as “L’anonymisation de données personnelles” [available in French], 05/19/2020, CNIL,
[Link] .
11
Exporter
Exportation country
Controller
Joint controller
Exporter qualification in the context Processor
of data transfer28
If ‘Processor’ or ‘Joint controller’, specify the name of the controller or
other joint controllers:
Importer
Importation country
Data controller
Joint controller
Importer qualification in the context Processor
of data transfer
If ‘Processor’ or ‘Joint controller’, specify the name of the
controller:
12
Importer
Transfer
Transfer method
(e.g. transmission by secure file transfer
protocol (SFTP), transmission by email,
connection via an application programming
interface (API), connection to a remote
server, storage of data in a physical medium
and sending, etc.)
In plain language
Encrypted
Pseudonymised
Format of data transferred
Other
If ‘Other’, specify:
Single transfer
Frequency of transfers One-off/occasional transfer (recurrence to be specified):
Regular transfer (recurrence to be specified):
13
Transfer
Yes
31 Article 10 GDPR
32 Article 87 GDPR
33 See Article 29 Working Party (G29), Guidelines on Data Protection Impact Assessment (DPIA) and determining whether processing is
"likely to result in a high risk" for the purposes of Regulation 2016/679, p.11, European Commission,
[Link]
34 Idem.
14
Transfer
Yes
Vulnerable persons among the data
subjects No
Total
35 The transferred data representing all or only part of the processed data.
15
3.2 Identify the transfer tool used (step 2)
The identification of the transfer tool used completes the description of the transfer (in step 1). It is necessary
to assess its effectiveness (in step 3).
If the transfer is based on one of the transfer tools of Article 46 GDPR, it is necessary to carry out a TIA and it is
appropriate to proceed to step 3.
If it is not necessary to carry out a TIA (see section 2.2), it is recommended to document the decision not to
carry out a TIA.
36See the Standard Contractual Clauses published by the European Commission. In its FAQ on SCCs, the European Commission states that
an additional set of SCCs dedicated to transfers to importers subject to the GDPR is being developed. Once this new game is adopted, it will
be possible to use it to frame transfers to importers subject to the GDPR. See §25 of FAQ. “New Standard Contractual Clauses - Questions
and Answers overview”, European Commission, [Link]
data-protection/new-standard-contractual-clauses-questions-and-answers-overview_en
37For BCR-Controller, see Recommendations 1/2022 on the Application for Approval and on the elements and principles to be found in
Controller Binding Corporate Rules (Art. 47 GDPR), EDPB, [Link]
documents/recommendations/recommendations-12022-application-approval-and_en
38For BCR-Subcontractors, see G29 Recommendation on the approval of the Processor Binding Corporate Rules form (wp265), European
Commission, [Link]
and Working Document on Binding Corporate Rules for Processors (wp257rev.01), European Commission,
[Link]
39See Guidelines 04/2021 on Codes of Conduct as tools for transfers, EDPB, [Link]
documents/guidelines/guidelines-042021-codes-conduct-tools-transfers_en
40 See Guidelines 07/2022 on certification as a tool for transfers, EDPB, [Link]
documents/guidelines/guidelines-072022-certification-tool-transfers_en
16
3.3 Assess the legislation and practices of the country of destination of the
data and the effectiveness of the transfer tool (step 3)
Once a clear vision of the transfer and the tool used is obtained, the third step is to determine whether there
are elements in the legislation or practices of the importing third country that could undermine the
effectiveness of the guarantees of the tool used or prevent the exporter or importer from fulfilling their
obligations. The description of the transfer (in step 1) allows its characteristics and sensitivity to be taken
into account when assessing the legislation and practices of the country of destination of the data and the
effectiveness of the transfer tool (in step 3).
The assistance of the importer is essential for this exercise: it is up to the exporter to ask it to provide an analysis
of its legislation, in particular as regards to access to data by the authorities, or at least to provide a list of the
applicable laws. It is therefore important to involve the importer in the implementation of the TIA as the
importer must follow the instructions of the exporter and the controller (if the exporter is a processor).
To complete this step, it is recommended to consult Annex 3 of the EDPB Recommendations on measures that
supplement transfer tools, which lists, in a non-exhaustive manner, sources of information that can be used.
These sources must be relevant, objective, reliable, verifiable and publicly available or otherwise accessible.
It is possible to rely on the CNIL’s Data protection around the world page which contains information about the
data protection framework in the third country (existence of a data protection law and a data protection
authority).
For the analysis of data access legislation by public authorities, you can also rely on reports from international
organisations and expert analyses such as analyses commissioned by the EDPB for certain countries. These
analyses should be completed and updated as necessary.
It is recommended to share the analyses through networks of DPOs, professional federations as well as groups
of companies or administrations.
General framework
What is its scope? If sectoral application, specify:
Sectoral application
17
Data protection legislation
41In order to determine whether the authority is independent, it is possible to rely on Articles 52 to 54 of the GDPR, on Article 15 of
Convention 108+ of the Council of Europe, [Link] and on the work of
the World Privacy Assembly (WPA):
Article 5.1 of its Rules of Procedure (PDF, 224 ko), GPA, [Link]
[Link];
Principle B.2 of its Accreditation Principles (PDF, 189 ko), GPA, [Link]
content/uploads/2015/02/[Link]; and
the document of the Working Group on the future of the Conference “Interpretation of the criteria of autonomy and
independence”, GPA, [Link]
independence-criteria_post-[Link].
It is also possible to build on the more general work of the Organisation for Economic Cooperation and Development (OECD):
Being an Independent Regulator, [Link]
[Link];
The Governance of Regulators, [Link]
Creating a Culture of Independence, [Link]
independence_9789264274198-[Link];
18
Data protection legislation
Yes
No
Are there effective legal
remedies?
Justify:
Yes
No
Are there effective and dissuasive
sanctions?
Justify:
Remedies and Sanctions Yes
No
Can these rights and remedies be
exercised by data subjects in the
EEA?
Justify:
Yes
No
42These laws may be of general application, concern the application of criminal law or the protection of national security. They may involve
authorities such as government agencies, regulators, tax authorities, police, intelligence agencies, etc.
43 Idem.
19
Essential guarantees44
44 See EDPB Recommendations 02/2020 on European essential safeguards for supervisory measures.
45These objectives are: (a) national security; (b) national defence; (c) public security; (d) the prevention, investigation, detection or
prosecution of criminal offences or the execution of criminal penalties, including the protection against and the prevention of threats to
public security; (e) other important objectives of general public interest of the Union or of a Member State, in particular an important
economic or financial interest of the Union or of a Member State, including in the monetary, budgetary and fiscal fields, public health and
social security; (f) the protection of judicial independence and judicial proceedings; (g) the prevention, detection, investigation and
prosecution of breaches of the ethics of regulated professions; (h) a monitoring, inspection or regulatory task connected, even occasionally,
with the exercise of official authority, in the cases referred to in points (a) to (e) and (g); (i) the protection of the data subject or the rights
and freedoms of others; (j) the execution of civil law claims.
20
Rule of law
Are there any rule of law issues affecting the If yes, list:
ability of data subjects affected by the
transferred data to seek redress against unlawful Issue How it affects the exercise of rights
access to personal data? for data subjects
Yes
No
Requests received
If yes, specify here how it can demonstrate
Can the importer demonstrate that he has not received a this:46
request for access or has been the subject of direct access
by the authorities of the third country to personal data of
EEA nationals (at least in recent years)? If not, specify here the type of applications
received, the quantity and manner in which they
Yes have been processed and/or the reasons why he
No thinks he may be the subject of them in the
future:
Can it be demonstrated that there is no reason to believe
that the importer will be the subject of a request for
access or direct access by the authorities of the third
country, in particular because the legislation or issues
identified will not in practice apply to the data transferred
and to the importer (taking into account its sector of
activity and the history of requests for access by the
authorities of the third country)?47 If yes, specify here how it can demonstrate
this:48
Yes
No
Conclusion
The transfer tool is effective in light of the assessment of local legislation and practices and it is possible
to carry out the transfer without supplementary measures (1).
The transfer tool is not effective in the light of the assessment of local legislation and practices and
supplementary measures need to be put in place (2).
46 For example, through its transparency report on requests for access by authorities to the data of the exporter or other exporters.
47In some cases where the transfer tool is not effective in the light of the assessment carried out but there is no reason to believe that the
problematic legislation will be applied in practice to the transferred data and/or to the importer, it is possible to decide to still proceed with
the transfer without implementing additional measures. It is then necessary to demonstrate and document this assessment where
appropriate in collaboration with the importer, also taking into account the experience of other actors operating in the same sector and/or
in sectors related to similar transferred personal data and other sources of information. See EDPB, Guidelines 01/2020, §43.3
48 For example, through material published by other actors operating in the same and/or related sectors.
21
The transfer tool is not effective in the light of the evaluation carried out but there is no reason to
believe that the problematic legislation will be applied in practice and it is decided to proceed with the
transfer without implementing supplementary measures (3).
Justify:
If the conclusion is that the transfer tool is effective in the light of the assessment carried out (1) or that despite
the ineffectiveness of the tool, it is possible to carry out the transfer without putting in place supplementary
measures (3), proceed to Step 6.
If the conclusion is that the transfer tool is not effective in light of the assessment carried out (2), proceed to
step 4 in order to identify supplementary measures.
These measures are referred to as ‘supplementary’ because they supplement the transfer tool used to ensure
compliance with the level of protection of personal data in the EEA. It is therefore necessary to identify in the
table below both measures already implemented, if any, as well as newly identified measures.
Annex 2 of the EDPB Recommendations on measures that supplement transfer tools provides a non-exhaustive
list of technical, contractual and organisational measures that can be implemented as use cases. It also presents
use cases for which the EDPB is unable to identify effective measures.50
It may be necessary to combine several supplementary measures. In most cases, contractual and organisational
measures are not sufficient to prevent possible access to the data by the authorities of the third country and need
to be complemented by properly implemented technical measures.51
The effectiveness of the supplementary measures may vary depending on the transfer described in Step 1 and
on the third country, hence the importance of conducting a detailed analysis in Step 3. In some cases, the
conclusion will be that there are no supplementary measures to ensure a level of protection
essentially equivalent to European law for the transfer in question, which should lead to a
waiver of the transfer of the data in question.
This process of identifying supplementary measures should be undertaken with due diligence, in collaboration
with the importer and should be documented. The involvement of the Chief Information Systems Officer is
essential. It is recommended that the opinions or analyses of the persons or entities consulted (e.g. DPO, legal
and technical advice, information systems officer, data protection authority) be annexed to the TIA.
49In its Opinion 22/2024, the EDPB states that "for processing presenting a high risk to the rights and freedoms of data subjects, the
controller should increase its level of verification in terms of checking the information provided." With regard to transfers specifically, it
further states: “the controller’s obligation to verify whether the (sub-)processors present ‘sufficient guarantees’ to implement the
appropriate measures determined by the controller should apply regardless of the risk to the rights and freedoms of data subjects. However,
the extent of such verification will in practice vary depending on the nature of these technical and organisational measures, which may be
stricter or more extensive depending on the level of such risk”. See EDPB, Opinion 22/2024 on certain obligations following from the
reliance on processor(s) and sub-processor(s), Executive Summary, §§60 and 83.
50 See EDPB Recommendations 01/2020, Use Cases 6 and 7, §§93-97.
51See EDPB, Recommendations 01/2020, §53: “Contractual and organisational measures alone will generally not overcome access to
personal data by public authorities of the third country based on problematic legislation and/or practices. Indeed there will be situations
where only appropriately implemented technical measures might impede or render ineffective access by public authorities in third
countries to personal data, in particular for surveillance purpose.”
22
Supplementary measures already implemented
Impact of
Description measures
(For each measure, provide a description, whether it is implemented by the importer (For each measure,
or exporter and to what extent it complies with the EDPB Recommendations) specify which risk(s)
is/are mitigated)
Technical
measures
1. a data exporter transfers personal data to a data importer in a jurisdiction where the law and/or practice allow the public
authorities to access data while they are being transported via the internet to this third country without the European essential
guarantees concerning these access, transport encryption is used for which it is ensured that the encryption protocols employed
are state-of-the-art and provide effective protection against active and passive attacks with resources known to be available to
the public authorities of this third country,
2. the parties involved in the communication agree on a trustworthy public-key certification authority or infrastructure,
3. specific protective and state-of-the-art measures are used against active and passive attacks on the sending and receiving
systems providing transport encryption, including tests for software vulnerabilities and possible backdoors, 4. in case the
transport encryption does not provide appropriate security by itself due to experience with vulnerabilities of the infrastructure
or the software used, personal data is also encrypted end-to-end on the application layer using state-of-the-art encryption
methods,
5. the encryption algorithm and its parameterization (e.g., key length, operating mode, if applicable) conform to the state-of-
the-art and can be considered robust against cryptanalysis performed by the public authorities when data is transiting to this
third country taking into account the resources and technical capabilities (e.g., computing power for brute-force attacks)
available to them (see footnote 80 above),
6. the strength of the encryption takes into account the specific time period during which the confidentiality of the encrypted
personal data must be preserved,
7. the encryption algorithm is implemented correctly and by properly maintained software without known vulnerabilities the
conformity of which to the specification of the algorithm chosen has been verified, e.g., by certification, 8. the keys are reliably
managed (generated, administered, stored, if relevant, linked to the identity of the intended recipient, and revoked), by the
exporter or by an entity trusted by the exporter under a jurisdiction offering an essentially equivalent level of protection.
23
Supplementary measures already implemented
Access requests
documentation (requests
received, reply, legal
reasoning, actors involved)
Data minimization (strict
and granular access, privacy
policies, access based on the
need-to-know principle,
control through audits,
disciplinary measures)
Governance (information
and involvement of the data
protection officer or GDPR
Organisational referent for all access
measures54 requests)
Adoption of security and data
protection standards
(certification and compliance
with safety standards)
Internal policies and
procedures for processing
access requests
Allocation of responsibilities
between entities in the same
group, appointment of
specific teams to handle
access requests, training of
staff responsible for
managing such requests
Other (please specify):
Inclusion of supplementary
technical or organisational
measures in a binding
contract
Transparency requirements
Obligation of the importer to
list laws, practices, measures
to prevent access, requests
Contractual
for access, and to indicate
measures55
whether he is legally
prohibited from providing
the above information
Prohibition of the use of
backdoors or processes that
facilitate access to data
Possibility to carry out an
audit to verify compliance
Notification of the exporter
(and data subjects) in case of
24
Supplementary measures already implemented
25
New supplementary measures
Technical measures
(see examples above)
Organisational
measures (see examples
above)
Contractual measures
(see examples above)
The transfer tool, combined with existing and new supplementary measures, is
effective in the light of the assessment carried out.
Conclusion
The transfer tool, combined with existing and new supplementary measures, is
not effective in the light of the assessment carried out.
If the conclusion is that the transfer tool, combined with these measures, is effective in the light of the
assessment carried out, it is possible to transfer subject to the effective implementation of supplementary
measures. In case already existing measures are sufficient, it is possible to go directly to step 6. In case
supplementary measures are needed (in addition to already existing ones), it is recommended to go to step 5.
Following the completion of the TIA or during a re-assessment, if the conclusion is that it is not possible to put
in place the necessary measures to ensure the effectiveness of the transfer tool, the planned transfer should not
be implemented. If the transfer is already ongoing, it needs to be terminated. In the latter case, the importer will
have to erase all data and prove them to the exporter, or return all data and erase existing copies.
56See EDPB Recommendations 01/2020,Section 2.5 Step 5, §§59-68. For example, the need for the exporter to apply to the competent
authority for an authorisation where the SCCs have been amended and this restricts the rights and obligations contained therein or where
the additional measures contradict the SCCs.
26
Action Plan
Description:
Action 1
Name:
Description:
Action 2
Name:
Opinions
Opinion of the person in charge of data protection (or the Data Protection Officer, if
applicable)
Opinion of the person in charge of security of the information system (or of the Chief
Information Security Officer, if applicable)
Validation by the person responsible for the transfer according to internal governance rules
27
3.6 Re-evaluate at appropriate intervals (step 6)
It is recommended to reassess at appropriate intervals the transfer tool and, where appropriate, the
supplementary measures that have been implemented for the transfer. This is essential to ensure that the
transfer will be suspended or terminated if the transfer tool or supplementary measures are no longer effective
in the third country. To this end, a periodic review of the transfer is recommended in the table below.
These appropriate intervals are to be determined on a case-by-case basis according to the country of destination
of the data and the level of risk to the rights and freedoms of the data subjects involved in the transfer. In various
circumstances, it may be necessary to reassess the transfer protection before the initial date of the next review,
for example in the event of a change in the third country’s law or practice, an importer’s inability to comply with
its commitments or a change in the European Commission’s assessment of the law applicable in the third
country. To this end, it is recommended to follow the legislative news in that country, in order to be able to
anticipate whether the reassessment of data protection in that country is necessary.
Reevaluate Protection
Interval between reviews
(e.g. every 2 years)
28
Regular reviews of adequacy decisions are necessary because they can change, adding or removing countries deemed to provide adequate data protection by the EU. This affects data transfers as only transfers to countries with current adequacy decisions are exempt from needing a TIA. Without such reviews, organizations may unknowingly transfer data without proper safeguards, violating GDPR requirements .
The EDPB evaluates supplementary measures based on the transfer's context, such as data sensitivity, the destination country's legal environment, the nature of potential threats, and the severity of risks to data subjects' rights and freedoms. Measures are deemed adequate if they effectively address the identified risks and align with GDPR requirements. Often, a combination of technical, contractual, and organizational measures is necessary for comprehensive protection .
Technical, contractual, and organizational measures act as supplementary safeguards when standard transfer tools fall short. Technical measures might include encryption; contractual measures could impose obligations like audit rights, and organizational measures might involve access controls and compliance policies. These measures collectively aim to raise the protection level to meet GDPR standards for data transferred outside the EEA .
Data minimization under GDPR requires that transferred data be limited to what is strictly necessary for their intended purposes. This means organizations must carefully evaluate the necessity of each data element involved in transfers to third countries, ensuring that only essential data elements are transmitted, thereby reducing privacy risks and aligning with GDPR principles .
In Transfer Impact Assessments, the data exporter is primarily responsible for ensuring the data's protection level during transfers to third countries, acting as either controller or processor. The importer's support is vital because it possesses detailed knowledge about local laws and necessary information to complete an accurate assessment. The importer's involvement ensures the TIA is comprehensive, especially in scrutinizing local legislation for compliance with GDPR standards .
Derogations under Article 49 can be used for specific scenarios like explicit data subject consent, necessary data transfers for contracts, or public interest reasons, without needing a TIA. These cases must be exceptional, not regular practice, and should align with a necessity test, ensuring the derogation isn't used routinely or without strict necessity .
Transparency is crucial for accountability and ensuring that data subjects are informed of how their data is used and protected. Mechanisms ensuring transparency in TIAs include detailed documentation of assessment processes, sharing audit results, informing data subjects and authorities of compliance efforts, and maintaining transparency reports that disclose authorities' access requests to transferred data .
The GDPR requires exporters to assess local laws and implement supplementary measures if necessary. These safeguards include technical protections, like encryption, and contractual obligations, such as challenging disproportionate access requests. Exporters must ensure these measures are in place to mitigate unauthorized access risks by authorities in third countries, thus maintaining GDPR-compliant protection levels .
A TIA can conclude that no supplementary measures are needed if, despite initial inadequacy in transfer tools, the assessment shows that problematic legislation isn't practically applied to the data transferred, and there's no expectation of authorized access in the receiving country. This conclusion requires substantial documentation and justification, often drawing from sector-specific experiences or reports indicating non-application of concerning local laws to similar data types .
Exporters using Article 46 GDPR tools for personal data transfers must assess the level of protection in the destination countries and consider supplementary measures, if necessary, to ensure compliance with EU standards. This process, known as Transfer Impact Assessment (TIA), involves evaluating local legislation and practices to ensure they meet EU data protection commitments. The exporter's obligations include ensuring that the importer complies with its commitments and suspending transfers if compliance fails .