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The former would be on shared storage and be managed by scoped storage, and the latter would be only accessible to the app. The enforcement of this might have to be both OS-based and code review based prior to granting access to the app stores which is a whole other thing.
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It was mandatory, and that was changed due to widespread outrage over Scoped Storage due to a successful misinformation campaign against it. That's what I was talking about here: twitter.com/DanielMicay/st It's still going to be mandatory, but it has been delayed by a year to R.
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Replying to @DanielMicay @Ishan_Ishana and 4 others
However, since the Scoped Storage model being mandatory has been delayed until the next major API level in Android R, apps can keep relying on the legacy storage model for an extra year and users will have a worse experience with those apps with the feature enabled universally.
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Removing the coarse access control model via Scoped Storage is clearly the best approach and is what they want to do, but Google didn't care enough about privacy to fight a campaign against it that had successfully turned user communities and the media against it in advance.
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So, it has been delayed by at least a year to Android R. It will become mandatory for the Android R API level, but it could take even longer for it to be enabled for apps targeting legacy API levels. The implementation works and it's a compatibility/usability vs. privacy choice.
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From the perspective of someone that cares about privacy and security, the fine-grained Storage Access Framework model has been around since Android 4.4 and the coarse access control model was clearly a major issue. I wanted apps to use SAF for ages, and it's what I used myself.
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So, for example, Signal doesn't have this issue because it doesn't put media files in shared storage. It doesn't mean it isn't an OS issue though, because the OS shouldn't support a coarse access control model for shared data. It applies more broadly to things like contacts too.
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