General decree of the district-free city of Chemnitz

for 13 August 2025 to maintain public safety and order in connection with the Chemnitzer FC football match in the one stadium on Gellertstraße in Chemnitz

Pursuant to Sections 1 para. 1 no. 3, 5 para. 1 and 31a para. 1 i. in conjunction with para. 2, para. 5 of the Saxon Police Authorities Act in the version dated 11 May 2019 (SächsGVBl. p. 358, 389), which was amended by Article 2 of the Act dated 22 July 2024 (SächsGVBl. p. 724), the following

General decree

of the City of Chemnitz for 17 September 2025 to maintain public safety and order in connection with the Chemnitzer FC football match at eins-Stadion an der Gellertstraße, Gellertstraße 25, 09130 Chemnitz.


1. the following orders are issued to enforce the prohibitions specified in Section 31a (1) of the Saxon Police Authorities Act (SächsPBG):

a. The ban, in accordance with § 31a paragraph 1 number 1, second alternative Sächs-PBG includes the following objects:

• Metal rods, slats
• Chains (except jewellery)
• Baseball bats
• Pyrotechnic products of any kind
• stones
• Knives that do not fall under the WaffG
• Cutting and stabbing tools (e.g. scissors)
• Gloves filled with quartz sand

b. The ban according to § 31a paragraph 1, number 2 SächsPBG includes the following items:

• Helmets
• protective vests
• Protectors and armour
• Puncture-resistant gloves/protector gloves
• Boxer mouthguards/bite guards

c. The ban pursuant to Section 31a(1)(3) SächsPBG includes the following items:

• balaclavas
• misused tube scarves
• ski masks
• Hooded jacket/hood with integrated goggles/mask/ balaclava
• Misused mouth-nose protection masks (except medical masks)
• Disposable and reusable overalls
  

2. according to the attached site plan (see map), which is part of the order, the order area includes the following streets/streets, paths and squares:

• Chemnitz main station (platforms 1 to 14, the entire area of the cross platform and the south tunnel between Bahnhofstraße and Dresdner Straße)
• Georgstraße from Bahnhofstraße to Straße der Nationen
• Straße der Nationen from Georgstraße to August-Bebel-Straße
• August-Bebel-Straße from Straße der Nationen to Dresdner Straße
• Thomas-Mann-Platz
• Gellertstraße from Dresdner Straße to Zietenstraße
• Hainstraße from Palmstraße to Forststraße
• Forststraße from Hainstraße to Steinweg
• Mauerstraße from Georgstraße to Minna-Simon-Straße
• Pedestrian subway "Bazillenröhre" from Mauerstraße to Dresdner Straße
• Dresdner Straße from Gießerstraße to Gellertstraße
• Palmstraße from Dresdner Straße to Zietenstraße
• Reinhardtstraße from Palmstraße to Gellertstraße
• Connecting road (Schwarzer Weg) from Forststraße to Heinrich-Schütz-Straße
• Heinrich-Schütz-Straße from Planitzwiese to Zietenstraße
• Zietenstraße from Heinrich-Schütz-Straße to Forststraße
• Planitzwiese industrial estate
• Zeisigwald forest between Planitzwiese, Eichenweg, Reitweg and Forststraße
• Car parks P2, P3, P4/Heim, P4/Gast, and car parks on Forststraße (both already included in Forststraße from Hainstraße to Steinweg), CPSV car park
• eins stadium car park on Gellertstraße (event site Gellertstraße 25)
  

3. the orders apply in the above areas on 17 September 2025 from 16:00 to 23:00.

4. the immediate enforcement of paragraphs 1 to 3 of this order is ordered in accordance with § 80 para. 2 no. 4 of the Administrative Court Code (VwGO).

5. the general ruling shall be deemed to have been announced on Tuesday, 16 September 2025.

Chemnitz, 15 September 2025

I. Facts of the case

On 17 September 2025, Chemnitzer FC and Hallescher FC will face each other as part of the 8th matchday of the Regionalliga Nordost. The match will be played at eins-Stadion, Gellertstraße 25, 09130 Chemnitz. Kick-off is 19:00. The match has been categorised as a category 1 security/risk match by the police, the city of Chemnitz and the host club.

There is evidence that the supporters of both teams have a high potential for violence and have a traditionally hostile relationship.

The police risk assessment is based on the following key aspects:

The match on 17 September is a so-called East derby. Such fixtures regularly cause a heightened level of emotionalisation among the fan camps involved. Traditionally, they are also associated with a high level of symbolic significance, which stems from the history of football in the former GDR Oberliga and is linked to a rivalry that has grown and solidified there. In view of the upcoming match and the categorisation as a hostile fan relationship, it must be assumed that the fan camps, especially the risk groups, will be more prone to violence and aggression.

Hallescher FC fan behaviour:

The Halle fans regularly actively support their team at away matches with an average of 1,000 fans, and even up to 1,500 fans at highlight matches.

The risk groups among Halle's supporters are known for their affinity for pyrotechnics and damage to property (graffiti, illegal posters and destruction of sanitary facilities) and regularly demonstrate this.

In addition, Halle fans repeatedly commit offences involving bodily harm at away matches, often to the detriment of police officers.


Chemnitzer FC fan behaviour:

Chemnitz supporters cultivate traditional rituals at home matches. They meet in and around trendy venues near the stadium and get in the mood for the upcoming match. Fan paraphernalia is prepared for the match and transported to the stadium. The Ultra scene also meets up and then heads to the stadium in a closed group. The city area of Chemnitz, and in particular the area surrounding the stadium, is regarded as "own" territory and is also claimed or defended against other football supporters. This was expressed, among other things, by the fact that Chemnitz fans had already posted slogans and graffiti in the visitors' block days before matches, inciting hatred and violence.


Last encounters:

The two teams last met in Chemnitz on 25 July 2024, with the following facts, among others, coming to light:

During the arrival phase, Halle fans put HFC stickers on a lamppost, a roadworks sign and a ticket machine.

During the match in Chemnitz, 20 Halle fans disguised themselves with balaclavas shortly before kick-off and subsequently set off 30 pyrotechnic devices.

Excursus: The last East derby, Jena vs Halle on 4 April 2025 in Jena

The last East derby in Jena saw considerable disruption from both fan camps.

Once again, masked Halle fans set off pyrotechnics before the start of the match. In addition, tracer bullets were fired several times in the direction of the home fans, stewards and officers. During the match, Halle fans forcibly opened the fence to the infield and attempted to storm the pitch. The visiting fans could only be forced back into the block through the use of direct force. During all phases of the operation, the Halle fans caused considerable disruption.


Assessment of the match day:

Due to the attractiveness of the match and the short travel distances for guests, the police expect a high level of spectator interest for the match on 17 September 2025.

The relevant disruptive groups from the fan scenes are also expected to attend.

Due to the good rail connections between Halle and Chemnitz, the trains are expected to be used by supporters of the visiting team. Fans arriving at Chemnitz main station will have to be escorted on foot to the Eins stadium on Gellertstraße.

Irrespective of this, Halle fans will still be travelling to and from the stadium individually by car, so-called "nine-seaters" and coaches.

Based on the experience of previous matches and in view of the close proximity of the two cities, an early and/or conspiratorial arrival of disruptive groups to Chemnitz and possible disruptive actions cannot be ruled out.

In addition, heavy alcohol consumption by visitors must be expected, especially during the arrival phase. Experience has shown that this leads to alcohol-related symptoms of drunkenness and regularly results in a lower inhibition threshold with regard to the use of violence.

In general, it can be assumed that ordinary fans will also come to the stadium due to the attractiveness of the opponent and will go to the usual meeting points in order to experience the feeling of community. In addition, targeted mobilisations of the scene to the stadium surroundings are conceivable, so that fans who are not organised in one of the fan scenes may also feel addressed by such mobilisations. It is therefore expected that the scene's typical meeting points around the stadium will also adapt to this situation.

In the past, supporters of Chemnitzer FC have often sought direct confrontation with opposing fans. To this end, they have attempted to enter the area around the stadium (e.g. via the so-called Planitzwiese) into the area of the visiting fans or onto the arrival/departure routes of opponents travelling by train. Such attempts are also to be expected at the upcoming match.

The Chemnitz Police Department therefore expects the following behaviour in particular for the match on 17 September 2025:

• police measures to ensure compliance with the law will be largely ignored and rejected,
• official action in the vicinity of the stadium to prevent violations of the law will lead to considerable frustration and aggression among those present. Violence against property or people are possible reactions.
  

The described potential dangers are primarily based on the fact that offences can be committed in the stadium and in the immediate vicinity of the stadium during high-risk matches, especially in the context of derbies, and that the listed objects are used by violent individuals to carry out violent actions or other disruptions. In the past, the carrying and use of the aforementioned objects has been regularly observed in public spaces, particularly in the wider vicinity of the stadium and on relevant travel routes.

In summary, there is a high probability that the match on 17 September 2025 will result in disruptions to public safety and order and the associated disruption to the legal system. It can be assumed that, similar to previous matches, bodily harm and property offences of all kinds and other violations of the Criminal Code, Administrative Offences Act, Weapons Act and others will be committed. Taking the aforementioned aspects into account, there is no doubt that considerable personal injury and/or property damage must be expected on the match day in question. It is therefore necessary to take all measures that can contribute to the disruption-free organisation of the event and the maintenance of public safety and order.

The City of Chemnitz, as the district police authority, fully agrees with this risk forecast. In order to ensure that the risk is reduced in the long term, it is necessary to order the items covered by the ban in accordance with Section 31a (2) SächsPBG.

II Justification

1. responsibility

In accordance with §§ 1, Para. 1 No. 3 and 31a Para. 5 of the SächsPBG, the city of Chemnitz is the district police authority responsible for averting danger. The local jurisdiction results from § 5 SächsPBG. The orders under numbers 1 to 3 of this general ruling serve to protect public safety and order, so that the security-related area of responsibility of the City of Chemnitz as the lowest security authority is opened up.


2. to numbers 1 to 3:

2.1 Legal basis

The legal basis for the order in Section 1 of this general ruling is Section 31a (2) SächsPBG. According to this, police authorities can issue orders to enforce the prohibitions specified in Section 31a (1) SächsPBG, in which the objects covered by the prohibition are specified.

2.2 Specific danger

According to Section 3 SächsPBG in conjunction with Section 4 No. 3a SächsPVDG, a danger is a situation in which there is sufficient probability in an individual case that damage to public safety or order will occur in the foreseeable future. If events proceed unhindered, it is certainly to be expected that visitors to the area around the one stadium on Gellertstraße, especially during the period mentioned in point 3, will use the objects mentioned in a football-related heated atmosphere in the anonymity of the crowd to the detriment of third parties and police officers. With regard to the football match on 17 September 2025, it is to be feared that the aforementioned objects may also be used in the course of attacks on emergency services or uninvolved third parties. The commission of criminal offences and administrative offences and thus violations of the legal system by these groups of people is to be expected on this match day, so that a concrete danger exists.

Furthermore, according to internal association regulations, this football match is considered a match with an increased security risk, for which there is sufficient probability based on general experience that a dangerous situation will occur at the event.

According to the assessment of the emergency services, the atmosphere in the designated area is considered to be aggressive and violent compared to other locations in the city in relation to the specific upcoming match event, as police measures could be vigorously resisted or even actively attacked, meaning that in many cases the situation could only be defused with the help of direct coercion. It is therefore sufficiently likely that the objects listed under point 1 a will be used as projectiles or weapons against (uninvolved) third parties or officers. Due to the previously described risk prognosis that there will be crowds of people in and around the stadium due to the high-risk match, so that the police officers and other persons present could be injured, the conditions for issuing the order for the objects covered by the ban in accordance with § 31a para. 2 SächsPBG are met.

The objects listed under 1 b are suitable and, under the circumstances, intended to ward off enforcement measures by the police.

Furthermore, the objects listed under item 1 c are suitable for appearing in a form which, under the circumstances, is intended to prevent identification. At past matches, fans have masked themselves before using pyrotechnic products by using the aforementioned items, thus evading detection by the police and subsequent criminal liability.

2.3 Discretion

2.3.1 Discretionary judgement

As the factual requirements of Section 31a (1) and (2) SächsPBG are met, the issuance of the police order under Section 1 of this general ruling is at the discretion of the City of Chemnitz.

The findings of the security authorities show that a certain state of emergency prevailed at certain match events. In view of the local conditions and the densely packed crowds there, the use of the aforementioned objects poses a concrete danger to public safety and, if the security authorities do not intervene, leads to a violation of the high-ranking legal right to health and life of the persons present or even uninvolved persons and emergency services. There is also a concrete threat to the property or possessions of individuals, for example through the removal of fan paraphernalia such as club scarves, flags, etc. Further interference must therefore be prevented at all costs.

The City of Chemnitz therefore considers an intervention under security law to be appropriate and necessary in order to avert the dangers described for all persons concerned and their property or possessions. The issuance of the order under No. 1 of this general ruling is therefore in accordance with due discretion.

2.3.2 Proportionality and weighing of judgements

The order is suitable, necessary and appropriate to ensure effective security. A milder but equally suitable means of averting the specific danger to life and limb of humans and animals as well as property or possessions is not apparent. Only the ordering of the prohibited objects appears to be effective and promising. The order is therefore necessary and suitable to fulfil the requirements laid down by law.

The necessity of the order under number 1 results from the following considerations:

a. Purpose of the order

The order serves the legitimate purpose of averting danger to life and limb of the persons present, police officers and uninvolved third parties in the area one stadium on Gellertstraße. As already mentioned above, there is a concrete danger that police officers may be actively attacked or that visitors and uninvolved third parties may be seriously injured by the objects listed under point 1 a (Section 31a (1) no. 1 SächsPBG), which currently jeopardises their right to physical integrity (Article 2 (2) sentence 1 of the Basic Law (GG)). In addition, the objects listed under point 1 b serve to ward off enforcement measures by the police enforcement service (Section 31a (1) no. 2 SächsPBG) or the objects listed under point 1 c to appear in a guise that is suitable and, under the circumstances, intended to prevent identification.

b. Suitability of the order

The order is suitable for achieving this purpose. A measure is suitable if it achieves or at least promotes the purpose pursued. The order fulfils the legislative provision of Section 31a (2) SächsPBG and designates the objects covered by the prohibition in Section 31a (1) SächsPBG.

c. Necessity of the order

The order under Section 1 is also necessary to achieve this purpose. A measure is necessary if there is no milder means that would bring about the same result and would be less burdensome for those affected.

The order must be issued to enforce the ban on weapons pursuant to Section 31a para. 1 no. 1 second alternative of the ban on protective equipment pursuant to Section 31a para. 1 no. 2 as well as the ban on wearing masks pursuant to Section 31a para. 1 no. 3, as no milder, equally effective means are recognisable. Active attacks on police officers and third parties can only be prevented in this way.

A massive police presence and the enforcement of police measures is also not an equally effective and expedient means. Due to the vastness of the area and the crowds of people, which experience has shown to be densely packed, the police can only partially control the designated area. Communicative measures have little effect on the clientele concerned. With increasing alcoholisation, security problems increase and the already low willingness of the people present to cooperate decreases.

It is therefore to be expected that there will be repeated assaults on the emergency services and that they will injure themselves as a result. Against this background, an increased police presence and the enforcement of police measures should not be considered as a milder measure. Due to the imminent dangers, the order is necessary and represents the only equally effective means of protecting the citizens of Chemnitz, the emergency services and uninvolved third parties from (significant) injuries.

The specified spatial and temporal limitation is necessary, as a narrower limitation would not be equally suitable. An even narrower spatial limitation would not fulfil the purpose of the measure equally well. According to the findings of the security authorities, the localities in the defined scope are the minimum extent of a spatial intervention in order to prevent dangers to life and limb of people and animals as well as property or possessions.

It is appropriate to base the order on the territorial scope of the City of Chemnitz Police Ordinance on the Maintenance of Public Safety and Order in Connection with Football Matches at the Eins Stadium on Gellertstraße (PolVO eins-Stadion an der Gellertstraße), which encompasses the area surrounding the stadium. It is also appropriate to include the direct access and approach routes to the stadium as well as places and focal points known to the police, where there have been several disturbances of public safety and order in the past, in the territorial scope of the general order.

The same applies to the time restriction, which relates to a period from 4.00 pm to 11.00 pm, which covers a time frame of just over three hours before and two hours after the match. Experience has shown that people are likely to gather in the immediate vicinity of the stadium during this time in particular. Particularly as a result of the match starting at 7.00 p.m., a large number of people can be expected to gather at the stadium from 4.00 p.m. at the latest due to general life experience and the possible arrival of the fan scene by train from Halle.

d. Appropriateness of the order

The ban ordered under point 1 is also appropriate and therefore proportionate in the narrower sense. This is the case if the disadvantages associated with the measure are not disproportionate to the intended purpose of the measure.

The assessment to be carried out in accordance with the principle of proportionality shows that the intended purpose cannot be achieved in the same way with another measure that is less intrusive. Although the ban represents a fundamental restriction of the general freedom of action, the interference is minor because it remains possible to leave the items in question at home and attend the football match in the stadium without these items. Both the spatial and temporal scope were kept as small as possible. The bans only apply in the immediate vicinity of the one stadium on Gellertstraße, where, according to the police, large crowds are expected and experience has shown that these areas are the most crowded. This spatial limitation is kept as narrow as possible and can be left quickly, so that only a short-term disturbance of the individual occurs. The time restriction from 4 p.m. to 11 p.m. also complies with the principle of proportionality. Furthermore, the action taken by the City of Chemnitz is also proportionate in the narrower sense, as the less disruptive means for all those affected has been chosen in comparison to an entry ban or exclusion of spectators. In relation to the individual rights affected here, in particular the constitutionally protected freedom of occupation and general freedom of action, the interests of the general public in physical integrity, which are particularly worthy of protection in accordance with Art. 2 para. 2 sentence 1 GG, prevail. An unconstitutional encroachment on the fundamental rights of those affected is not apparent: there is no violation of the general freedom of action guaranteed by Article 2 (1) of the Basic Law. It is true that the scope of protection of Art. 2 para. 1 GG, which protects every self-determined human action, is open. This also includes the carrying and use of the objects mentioned. However, the general freedom of action is limited by the rights of third parties, the constitutional order and the moral law. The waiver of the right to carry and use the listed objects does represent a restriction, but this has been justified by the legislator in § 31a SächsPBG. There is a concrete risk of a considerable danger to life and limb as well as property and possessions of persons in the area of the eins stadium on Gellertstraße. Weighing up the public interest against the comparatively minor interference with the general freedom of action of those affected, the measure is duly discretionary and, in particular, proportionate in the narrow sense. The measure is the appropriate and least intrusive means of preventing danger to life and limb as well as property and possessions of citizens and of ensuring the physical integrity of the general public in accordance with Article 2 (2) sentence 1 of the Basic Law.

3. to number 4: Order of immediate execution

Objections and actions for annulment against the regulatory orders in items 1 to 3 under item 4 of this general ruling have no suspensive effect, as immediate enforcement has been ordered.

The order for immediate enforcement is based on Section 80 (2) sentence 1 no. 4 and (3) of the VwGO. The order for immediate enforcement is in the public interest. The special public interest in the immediate enforcement of number 1 arises from the urgent need to avert danger to life and limb, in particular from persons, emergency and security forces on public roads, paths and squares. The general public has a legitimate interest in the creation of conditions to avert danger to the life and health of people and animals as well as vehicles and to be effectively protected from danger. In particular, the right to physical integrity (Art. 2 Para. 2 Sentence 1 GG) and the right to property and ownership (Art. 14 GG) must be protected. In the opinion of the City of Chemnitz, the interests of the emergency services, persons, animals and vehicles at risk within the scope of this general ruling, the associated need to avert danger to the general public and the interests of those affected in waiting until the final clarification of the legality of point 1 of this general ruling (cf. Art. 19 Para. 4 Sentence 1 GG) must take precedence over the interests of those affected.

Waiting until the decision becomes unappealable would mean that the listed objects would continue to be carried and used in the area of the one stadium on Gellertstraße, which is unacceptable due to the above description of the dangers to life and limb of humans and animals as well as to property and possessions. However, the associated risks to the health and lives of people and the associated threat to physical integrity require immediate intervention under security law. The private interest in the use of the listed objects in the public domain must take second place to the important protected interests for the temporally and locally limited area of application.

4. to item 5: Publication

This general ruling and the reasons for it are publicly announced in accordance with Section 1 of the Saxon Administrative Procedure and Service of Documents Act (SächsVwVfZG) in conjunction with Section 41 (3) of the Administrative Procedure Act (VwVfG), as notification to the parties involved is not possible due to the circumstances of the case.

is not possible. The public announcement is made in accordance with Sections 1 SächsVwVfZG, 41 Para. 4 VwVfG in conjunction with Sections 1 and 2 of the statutes of the City of Chemnitz on the form of public announcement and the customary local announcement (announcement statutes) of 5 May 2021 by the public announcement of this general ruling in the electronic edition of the official gazette of the City of Chemnitz on the website of the City of Chemnitz at www.chemnitz.de/amtsblatt.

In accordance with Section 41 (4) VwVfG, the public announcement of a written administrative act is deemed to have been made two weeks after the customary local announcement. However, in order to counteract the specific threat to life and limb, use was made of the option under Section 41 para. 4 sentence 4 VwVfG and an earlier announcement date was chosen.

The final and matchday-related risk forecast from the Chemnitz police department was not available to the district police authority until the end of the 37th calendar week. In order to prevent the current concrete danger immediately, it was necessary to announce the general ruling in this way. Pursuant to Section 41 (4) sentence 4 VwVfG in conjunction with Section 7 (1) of the Publication Statutes, this general ruling is deemed to have been announced on the day following its public announcement.

III Notice of legal remedies

An objection to this general ruling may be lodged within one month of its public announcement. The objection must be submitted in writing, in electronic form in accordance with Section 3a (2) of the Administrative Procedure Act, in written form in accordance with Section 3a (3) of the Administrative Procedure Act and Section 9a (5) of the Online Access Act or for recording at the City of Chemnitz, Markt 1, 09111 Chemnitz or at any other office or citizen service centre of the City of Chemnitz.

If the objection is lodged in writing in accordance with Section 3a (3) of the Administrative Procedure Act, the following options are available:

1. Use of the online application "Submit an objection" available on the website of Office 24 (www.amt24.sachsen.de) and identification via eID

2. in the case of legal representation, by submitting via the special public authority mailbox (beBPo) "Stadt Chemnitz".

Notes:

1. also prohibited are all objects that are subject to the Weapons Act or the Explosives Act. Examples of this are firearms, knuckledusters, deadly clubs, pointed throwing stars or pyrotechnic products.

2. objects to which an offence under § 31a SächsPBG relates can be confiscated. § Section 74a of the Criminal Code applies accordingly.

3. any person may receive printouts of the electronic official gazette of the City of Chemnitz free of charge during general opening hours. It is also possible to have printouts sent to you against reimbursement of postage costs.

Chemnitz, 15 September 2025

Knut Kunze
Mayor