Decision: Facebook Fan Page Administrators are Data Controllers


By Susan Wolf

On 5th June 2018 the Court of Justice of the European Union (CJEU) delivered its long awaited Facebook fan page decision. The case concerned the definition of data controller under the now repealed Data Protection Directive 95/46/EC [1] and in particular whether the administrator user of a Facebook fan page was a data controller.

The fact that the Data Protection Directive has been replaced by the GDPR 2016 should not diminish the importance of this ruling, particularly for organisations that use Facebook or other social media platforms to promote their business or organisation.

We explain some of the issues raised in the case and consider the implications of the ruling for administrators of Facebook fan pages under the GDPR.

The case

The case involved Wirtschaftsakademie Schleswig-Holstein GmbH, a private training academy in Germany. The company provided business training for commerce and industry (including GDPR training).  It operated a Facebook fan page to make people aware of its range of services and activities.

Fan pages are user accounts that can be set up on Facebook by individuals or businesses. According to Facebook, a fan page is a place where businesses can create a space on Facebook, to connect with people to tell them about their business.  Fan pages are not the same as Facebook profiles, which are limited purely for individuals’ personal use. Unlike a personal Facebook profile, a Fan page is accessible to anyone using the Internet.

Authors of fan pages must register with Facebook in order to use the online platform to post any kind of communication. At that time, fan page administrators could obtain, from Facebook, anonymous statistical information on visitors to the fan page, via a function called ‘Facebook Insights’. That information was collected by means of ‘cookies’, each containing a unique user code, which remained active for two years and were stored by Facebook on the hard disk of the computer or on other media of visitors to fan pages. The user code, which could be matched with the connection data of users registered on Facebook, was collected and processed when the fan pages were opened.

The service, which was provided free of charge under non-negotiable terms, was no doubt very useful to the German Training Academy.  Unfortunately, neither Wirtschaftsakademie, nor Facebook Ireland notified anybody ‘visiting’ the fan page about the use of the cookies or the subsequent processing of the personal data.  The German Data Protection Supervisory Authority for the Schleswig-Holstein Land (Region) took the view that by setting up its fan page, the Wirtschaftsakademie had made an active and deliberate contribution to the collection by Facebook of personal data relating to visitors to the fan page, from which it profited by means of the statistics provided to it by Facebook.  The regulator concluded (in November 2011) that the Wirtschaftsakademie was a data controller and consequently ordered it to deactivate its fan page and threatened a penalty payment if the page was not removed.

The Wirtschaftsakademie challenged that before the German Administrative Court. Their main argument was that it was not responsible under data protection law for the processing of the data by Facebook or the cookies that Facebook installed, and neither had it commissioned Facebook to process personal data on its behalf. This argument was successful before the administrative court. However the regulator appealed and what followed was lengthy protracted litigation in the German courts. By 2016 the case had reached the Federal Administrative Court. The Federal Court also agreed that the Wirtschaftsakademie was not responsible for the data processing as defined by Article 2 (d) of the Data Protection Directive:

  • (d) ‘controller’ shall mean the natural or legal person, public authority, agency or any other body which alone or jointly with others determines the purposes and means of the processing of personal data. The GDPR, Article 4 defines data controller in identical terms.

However, the Federal Court also decided that it was necessary to refer the question to the CJEU under the preliminary rulings, particularly since the CJEU had previously ruled [2] that the concept of data controller should be given a broad interpretation in the interests of the effective protection of the right of privacy.

The CJEU Ruling

The CJEU has no difficulty in concluding that Facebook Inc. and Facebook Ireland were data controllers because they

determined the purposes and means of processing the personal data of Facebook users and anyone visiting fan pages hosted on Facebook. However, the Court recalls that the definition includes entities that  ‘alone or jointly with others’ determine the purposes and means of data processing. In other words, the purposes may be determined by more than one controller and may be determined by ‘several actors taking part in the processing’ with each being subject to the provisions of the Directive.

On the facts, the Court considered that the administrator of a Facebook fan page:

  • Enters into a contract with Facebook Ireland and subscribes to the conditions of use, including the use of cookies.
  • Is able to define the parameters of the fan page, which has an influence on the processing of personal data for the purposes of producing statistics based on visits to the fan page.
  • Could, with the help of filters made available by Facebook, define the criteria for statistical analysis of data.
  • Could designate the categories of persons whose personal data is to be made use of by Facebook.
  • Can ask Facebook for demographic data relating to its target audience, including age, sex, relationship and occupation, lifestyle and purchasing habits.

These factors pointed to the fact that the administrator of a fan page hosted on Facebook takes part in the determination of the purposes and means of processing the personal data of visitors to the fan page. Consequently the administrator of the fan page is to be regarded as a data controller, jointly with Facebook Ireland.

The Court rejected arguments that the Wirtschaftsakademie only received the statistical data in anonymised form because the fact remained that the statistics were based on the collection, by cookies, of the personal data of visitors to the fan page.

The fact that the fan page administrator uses the platform provided by Facebook does not exempt it from compliance with the Directive. The Court also added that non Facebook users may visit a fan page and therefore the administrator’s responsibilities for the processing of the personal data appears to be even greater as the mere consultation of the home page automatically starts the processing of personal data.

[1]  Case C210/16 Unabhängiges Landeszentrum für Datenschutz Schleswig-Holstein v

Wirtschaftsakademie Schleswig-Holstein GmbH

[2]Case C 212/13  František Ryneš v Úřad pro ochranu osobních údajů


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Author: actnowtraining

Act Now Training is Europe's leading provider of information governance training, serving government agencies, multinational corporations, financial institutions, and corporate law firms. Our associates have decades of information governance experience. We pride ourselves on delivering high quality training that is practical and makes the complex simple. Our extensive programme ranges from short webinars and one day workshops through to higher level practitioner certificate courses delivered online or in the classroom.

2 thoughts on “Decision: Facebook Fan Page Administrators are Data Controllers”

  1. Interesting read! I wonder how this would translate across to blogging platforms as I know many offer statistics to blog owners regarding visitors to their pages as a standard service

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