Data protection

In the picture: A data

protection code of
practice for surveillance
cameras and personal
information
Contents
Introduction ..................................................................................... 3

About this code ................................................................................ 4

What this code covers ....................................................................... 6

Deciding when surveillance camera systems should be used .................. 8

Governance ................................................................................... 10

Selecting and siting surveillance systems........................................... 23

Surveillance technologies other than CCTV systems ............................ 25

Using the equipment ....................................................................... 33

Responsibilities .............................................................................. 36

Appendix 1 .................................................................................... 39

Appendix 2 .................................................................................... 40

Appendix 3 .................................................................................... 43

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1. Introduction
The Information Commissioners Office (ICO) issued its first code of
practice under the Data Protection Act 1998 (DPA) covering the use of
CCTV in 2000. The code was developed to explain the legal requirements
operators of surveillance cameras were required to meet under the Act
and promote best practice. The code also addressed the inconsistent
standards adopted across different sectors at that time and the growing
public concern caused by the increasing use of CCTV and other types of
surveillance cameras.

A lot has changed since this time and, while the original code was
updated in 2008, further legal, practical and technological developments
mean that updated guidance is required. We have moved away from
CCTV simply being a camera on top of a pole in our local town centre
where the images were recorded on to video tapes, to much more
sophisticated operations using digital and increasingly portable
technology. The use of Automatic Number Plate Recognition (ANPR) is
now commonplace and body worn cameras are being routinely used by
organisations, such as the police.

Surveillance cameras are no longer a passive technology that only records

and retains images, but is now a proactive one that can be used to
identify people of interest and keep detailed records of peoples activities,
such as with ANPR cameras. The use of surveillance cameras in this way
has aroused public concern due to the technology no longer being used
solely to keep people and their property safe, but increasingly being used
to collect evidence to inform other decisions, such as the eligibility of a
child to attend a school in a particular area.

The unwarranted use of CCTV and other forms of surveillance cameras

has led to a strengthening of the regulatory landscape through the
passing of the Protection of Freedoms Act (POFA). The POFA has seen the
introduction of a new surveillance camera code issued by the Secretary of
State since June 2013 and the appointment of a Surveillance Camera
Commissioner to promote the code and review its operation and impact.
The ICO has contributed to this tougher regulatory landscape by taking
enforcement action to restrict the unwarranted and excessive use of
increasingly powerful and affordable surveillance technologies.

While the title of this code has changed to highlight its focus on the data
protection implications of using CCTV and other forms of surveillance
cameras, its objectives remain the same. The ICO has developed this

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code following extensive consultation. It is designed to help those who
use surveillance cameras to collect personal data to stay within the law.

2. About this code

This code provides good practice advice for those involved in operating
CCTV and other surveillance camera devices that view or record
individuals, and covers other information that relates to individuals, for
example vehicle registration marks captured by ANPR equipment. This
code uses the terms surveillance system(s), CCTV and information
throughout for ease of reference. Information held by organisations that
is about individuals is covered by the DPA and the guidance in this code
will help organisations comply with these legal obligations.

The DPA not only creates obligations for organisations, it also gives
individuals rights, such as the right to access their personal information,
and to claim compensation when they suffer damage

The basic legal requirement is to comply with the DPA itself. This code
sets out the Information Commissioners recommendations on how the
legal requirements of the DPA can be met. Organisations may use
alternative methods to meet these requirements, but if they do nothing
they risk breaking the law.

This code also reflects the wider regulatory environment. When using, or
intending to use surveillance systems, many organisations also need to
consider their obligations in relation to the Freedom of Information Act
2000 (FOIA), the POFA, the Human Rights Act 1998 (HRA) and the
Surveillance Camera Code of Practice issued under the Protection of
Freedoms Act (POFA code).

The POFA in particular has an important role in regulating surveillance

systems, creating the role of the Surveillance Camera Commissioner,
which the Information Commissioner has a memorandum of
understanding with to ensure effective cooperation. The Surveillance
Camera Commissioner is charged with promoting good practice regarding
surveillance cameras and to encourage compliance with the POFA code.

The POFA code is also an important document to refer to when your issue
is not a data protection one. It provides advice and guidance on issues
such as operational requirements, technical standards and the
effectiveness of the systems available. The 12 guiding principles are the
key component of the POFA code and these are referenced throughout the
ICO code to enable practitioners to see the core compliance points in both

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codes. The guiding principles in the POFA code are also contained in
annex 3.

This code is consistent with the POFA code and therefore following the
guidance contained in this document will also help you comply with that
code. The POFA code explains that it:

provides guidance on the appropriate and effective use of surveillance

camera systems by relevant authorities.

The POFA requires relevant authorities to have regard to guidance in the

POFA code. In general terms, the police, police and crime commissioners
and local authorities in England and Wales are designated as relevant
authorities, along with the National Crime Agency. All other data
controllers are encouraged to follow the POFA code and advice from the
Surveillance Camera Commissioner as good practice. This code outlines
the connections it has with the POFA code to help you comply with both.

Further details can be found on the Surveillance Camera Commissioners

website.

Unlike the DPA, the POFA only applies to England and Wales and therefore
is not applicable to the rest of the UK. The Scottish Government has
produced its CCTV Strategy for Scotland. The strategy provides a
common set of principles that operators of public space CCTV systems in
Scotland must follow. The principles aim to ensure that these systems are
operated fairly and lawfully and are using technologies compatible with
the DPA.

This code of practice covers a wider area than the POFA code. This is
because the DPA is applicable to all organisations that process personal
data across the whole of the UK and has the same effect across all
sectors. One of the key differences is that the private sector is required to
follow this code to meet its legal obligations under the DPA. Any
organisation using cameras to process personal data should follow the
recommendations of this code.

The recommendations in this code are all based on the data protection
principles (Appendix 1) that lie at the heart of the DPA, and have been set
out to follow the lifecycle and practical operation of surveillance systems.
Each section of the code poses questions that must be addressed to help
ensure that the good practice recommendations are achieved.

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Following the recommendations in this code will:
help ensure that those capturing individuals information comply
with the DPA and other relevant statutory obligations;
contribute to the efficient deployment and operation of a camera
system;
mean that the information captured is usable and can meet its
objectives in practice;
reduce reputational risks by staying within the law and avoiding
regulatory action and penalties;
re-assure those whose information is being captured;
help inspire wider public trust and confidence in the use of CCTV;
and
help organisations in England and Wales to follow guidance in the
POFA code.

3. What this code covers

The majority of surveillance systems are used to monitor or record the
activities of individuals, or both. As such they process individuals
information - their personal data. Most uses of surveillance systems will
therefore be covered by the DPA and the provisions of the code, whether
the system is used by a multinational company to monitor entry of staff
and visitors in and out of its premises, or a local newsagent recording
information to help prevent crime.

This code also covers the use of camera related surveillance equipment
including:

Automatic Number Plate Recognition (ANPR);

body worn video (BWV);
unmanned aerial systems (UAS); and
other systems that capture information of identifiable individuals or
information relating to individuals.

This code provides guidance on information governance requirements,

such as data retention and disposal, which it is important to follow in
order to comply with the data protection principles.

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The use of surveillance systems for limited household purposes can be
exempt from the DPA.

The Court of Justice of the European Union (CJEU) issued its judgment in
the case of Ryne on 11 December 2014. In this judgment, the CJEU
concluded that where a fixed surveillance camera faces outwards from an
individuals private domestic property and it captures images of
individuals beyond the boundaries of their property, particularly where it
monitors a public space, the recording cannot be considered as being for
a purely personal or household purpose.

This means that cameras attached to a private individuals home may, in

certain circumstances, no longer be exempt from the requirements of the
DPA under section 36. Those circumstances are likely to include where the
camera monitors any area beyond the interior and exterior limits of that
individuals home. This would include any camera to the extent that it
covered, even partially, a public space such as the pavement or street. It
would also cover cameras which captured areas such as neighbours
gardens.

This decision does not mean that using such a camera is not possible but
it does mean that individuals will have to ensure that its use is legitimate
under the DPA. The CJEU made clear that use of cameras to protect a
property in this way can meet the legitimate interest condition in the
legislation. The ICO has produced a short complementary piece of
guidance for the public on how to ensure the use of a surveillance camera
on a private domestic property complies with the DPA.

The ICO will continue to assess the potential wider impact of the CJEUs
decision on other surveillance technologies and may add further updates
to this code.

This code is primarily aimed at businesses and organisations that

routinely capture individuals information on their surveillance systems.
Some specific uses of image recording equipment are not intended to be
covered in this code, although they may still be covered by the
requirements of the DPA.

The covert surveillance activities of public authorities are not covered

here because they are governed by the Regulation of Investigatory
Powers Act (RIPA) 2000 and Regulation of Investigatory Powers

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(Scotland) Act (RIPSA) 2000. This type of recording is covert and directed
at an individual or individuals1

Example: The police monitoring and recording the movement of a

suspected drug dealer with covert surveillance equipment to identify
whether they are committing any related offences.

The use of conventional cameras (not CCTV) by the news media or for
artistic purposes, such as for film making, are not covered by this code as
an exemption within the DPA applies to activities relating to journalistic,
artistic and literary purposes. However, this code does apply to
information collected by surveillance systems that is then provided to the
media.

Not all sections of the code will be fully relevant to all surveillance
systems; this will depend upon the extent and use of the information.
Although small-scale users, such as small retailers, are covered by the
DPA, they are unlikely to have sophisticated systems, so many of this
codes more detailed provisions will be inappropriate. Appendix 2 provides
special guidance, as an alternative to the full code, for very limited use of
surveillance systems where privacy risks are small and resources are
limited. If you are a small scale user, but you wish to use your
surveillance system for any purpose that is not covered in the checklist,
you should read the full code.

Note: The DPA applies to information captured by surveillance systems.

This code does not cover the use of dummy or non-operational systems.
However, it would cover the piloting of live systems as personal data will
be captured.

4. Deciding when surveillance camera systems

should be used
Using surveillance systems can be privacy intrusive. They are capable of
placing large numbers of law-abiding people under surveillance and
recording their movements as they go about their day-to-day activities.
You should therefore carefully consider whether or not to use a
surveillance system. The fact that it is possible, affordable or has public

1
For further information please refer to the following: https://www.gov.uk/surveillance-
and-counter-terrorism and the Surveillance Road Map.

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support should not be the justification for processing personal data. You
should also take into account the nature of the problem you are seeking
to address; whether a surveillance system would be a justified and an
effective solution, whether better solutions exist, what effect its use may
have on individuals, and whether in the light of this, its use is a
proportionate response to the problem. If you are already using a
surveillance system, you should regularly evaluate whether it is necessary
and proportionate to continue using it.

Example: Cars in a car park are frequently damaged and broken in to at

night. Consider whether improved lighting would reduce the problem
more effectively than CCTV.

You should consider these matters objectively as part of an assessment of

the schemes impact on peoples privacy. The best way to do this is to
conduct a privacy impact assessment. The ICO has produced a
Conducting privacy impact assessments code of practice that explains
how to carry out a proper assessment.

A privacy impact assessment looks at privacy in a wider context than just

the DPA, it also takes into consideration the HRA (where the data
controller is also a public authority), and the impact on privacy rights. It
should look at the pressing need the surveillance system is supposed to
address, and show whether or not the system will meet this need. It
should be based on reliable evidence and show whether the surveillance
system proposed can be justified as proportionate to the needs identified.

Note: Although private companies are not subject to the HRA, in

conducting a privacy impact assessment and an evaluation of
proportionality and necessity, you will be looking at concepts that would
also impact upon fairness under the first data protection principle. Private
sector organisations should therefore also consider these issues.

A privacy impact assessment should look at the pressing need that the
surveillance system is intended to address and whether its proposed use
has a lawful basis and is justified, necessary and proportionate. Where
the system is already in use, the same issues should be considered or
considerations should be made as to whether a less privacy intrusive
method could be used to address the pressing need. Guiding Principle 1 of
the POFA code (see Appendix 3 for a full list of these guiding principles)
echoes what is said in this section.

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Example: A police force could use a temporary or vehicle based mobile
ANPR car to help it decide if it addresses the pressing need in a particular
location before establishing a permanent system.

Failure to carry out an appropriate privacy impact assessment in advance

has contributed to many of the data protection problems that have
occurred in relation to the use of surveillance systems, for example, the
Royston ring of steel in which the ICO issued an enforcement notice to
Hertfordshire Constabulary.

5. Governance
5.1 Ensuring effective administration
Establishing a clear basis for the processing of any personal information is
essential, and the handling of information relating to individuals collected
from surveillance systems is no different. It is important that you
establish who has responsibility for the control of this information, for
example, deciding what is to be recorded, how the information should be
used and to whom it may be disclosed. If you are the organisation that
makes these decisions then you are the data controller and you are
legally responsible for compliance with the DPA.

Wider governance issues are also addressed in Guiding Principle 4 of the

POFA code.

Where more than one organisation is involved, you should both know
your responsibilities and obligations. If you make joint decisions about the
purposes for, and operation of, the scheme, then both of you are
responsible under the DPA. This may be the case, for example, where the
police have a live feed from a local authority owned camera.

Who has responsibility for control of the information and making

decisions about how it can be used? If more than one body is
involved, have responsibilities been agreed and does each know its
responsibilities?
Has the body or bodies responsible notified the ICO that they are
the data controller? Does the notification cover the purposes for

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 which the information is used, the disclosures that are made, and
other relevant details?
If someone outside your organisation provides you with any
processing services, for example editing information (such as CCTV
images), is a written contract in place with clearly defined
responsibilities? This should ensure that information is only
processed in accordance with your instructions. The contract should
also include guarantees about security, such as storage and the use
of properly trained staff.

Example: Public authorities may share a common control room for a

surveillance system in order to cut back on running costs. This will
include situations where the surveillance system is managed by a third-
party on behalf of the public authority. If the surveillance system
monitors the inside of a hospital but also monitors the high street, then
different privacy expectations will apply to the information gained from
each. The agreement to share services must have guidelines and
procedures in place to ensure that control and use of these systems is
appropriate and staff must be adequately trained to deal with the
differing levels of sensitivity of information. In a shared service situation
it should also be made clear who is in control of what information.

You will also need clear procedures to determine how you use the system
in practice.

Have you identified clearly defined and specific purposes for the use
of information, and have these been communicated to those who
operate the system?
Are there clearly documented procedures, based on this code, for
how information should be handled in practice? This could include
guidance on disclosures and how to keep a record of these. Have
these been given to the appropriate people?
Has responsibility for ensuring that procedures are followed been
allocated to an appropriate named individual? They should ensure
that standards are set, procedures are put in place to meet these
standards, and that the system complies with this code and legal
obligations, such as an individuals right of access.

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 Are proactive checks or audits carried out on a regular basis to
ensure that procedures are being complied with? This can be done
either by you as the system operator, or a third party.

Guiding Principle 5 of the POFA code emphasises the importance of clear

policies and procedures and communicating these to all who need to
comply with them.

You should regularly review whether the use of surveillance systems

continues to be justified. It is necessary to renew your notification with
the ICO annually, so this would be an appropriate time to consider the
ongoing use of such systems.

You should also take into account other relevant rules and guidance which
may cover your activities. For example the ICOs Privacy notices code of
practice, Data sharing code of practice, Employment practices code,
Employment practices code - supplementary guidance (this
supplementary guidance is particularly important if surveillance systems
will be used to monitor employees) and, as mentioned above, the
Conducting privacy impact assessments code of practice.

5.2 Looking after the recorded material and using the

information
5.2.1 Storing and viewing surveillance system information
Recorded material should be stored in a way that maintains the integrity
of the information. This is to ensure that the rights of individuals recorded
by surveillance systems are protected and that the information can be
used effectively for its intended purpose. To do this you need to carefully
choose how the information is held and recorded, and ensure that access
is restricted. You will also need to ensure that the information is secure
and where necessary, encrypted. Encryption can provide an effective
means to prevent unauthorised access to images processed in a
surveillance system. However, there are circumstances where it is not
possible to apply encryption.

Where encryption is not appropriate, for example, if it may have an effect

on the information that you are choosing to process, then other
appropriate methods should be employed to ensure the safety and
security of information.

If you are going to be collecting and retaining a large amount of

information, for example video footage from BWV cameras, then you may

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wish to store the data using a cloud computing system. You will need to
ensure that this system is secure and if you have contracted with a cloud
provider to provide this service, you will need to ensure that the provider
can ensure the security of the information. More can be found in the ICOs
guidance on the use of cloud computing.

You may wish to keep a record or audit trail showing how the information
must be handled if it is likely to be used as evidence in court. Finally,
once there is no reason to retain the recorded information, it should be
deleted. Exactly when you decide to do this will depend on the purpose
for using the surveillance systems. A record or audit trail of this process
should also be captured.

Many modern surveillance systems rely on digital recording technology

and these new methods present their own problems. With video tapes it
was very easy to remove a tape and give it to law enforcement agencies,
such as the police, for use as part of an investigation. It is important that
your information can be used by appropriate law enforcement agencies if
its required. If it cant, this may undermine the purpose for undertaking
surveillance.

Guiding Principle 9 of the POFA code reinforces the importance of

safeguarding information and the Surveillance Camera Commissioner is
responsible under POFA for providing advice about recommended
operational and technical standards.

How practicable is it to take copies of a recording off your system

when requested by a law enforcement agency? Can this be done
without interrupting the operation of the system?
Can it be provided in a suitable format without losing image quality
or time and date information?
How can you ensure that information complies with designated
standards?
Will they find your recorded information straightforward to use?
What will you do when recorded material needs to be taken away
for further examination?

Viewing of live images on monitors should usually be restricted to the

operator and any other authorised person where it is necessary for them
to see it, for example to monitor congestion for health and safety
purposes, unless the monitor displays a scene which is also in plain sight
from the monitor location.

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Example: Customers in a bank can see themselves on a monitor screen.
This is acceptable as they cannot see anything on the screen which they
could not see by looking around them. The only customers who can see
the monitor are those who are also shown on it.

Example: Monitors in a hotel reception area show guests in the corridors

and lifts, ie out of sight of the reception area. They should be positioned
so that they are only visible to staff and members of the public should
not be allowed access to the area where staff can view them.

If you have set up a live streaming camera available to the public so that
they can, for example, assess which route to take on their journey to
work based on the level of congestion, you should ensure that it is
appropriately zoomed out so that individuals cannot be identified. If
individuals can be identified then this will need to be justified and shown
to be necessary and proportionate.

Recorded images should also be viewed in a restricted area, such as a

designated secure office. The monitoring or viewing of images from areas
where an individual would have an expectation of privacy should be
restricted to authorised personnel.

Where images are in an area of particular sensitivity, such as a changing

room, it may be more appropriate to only view recorded images after an
incident has occurred.

Are your monitors correctly sited taking into account the images
that are displayed?
Is your monitor viewing area appropriate and secure?
Where necessary, is access limited to authorised people?
Does real time monitoring need to take place?

5.2.2 Disclosure
Disclosure of information from surveillance systems must be controlled
and consistent with the purpose(s) for which the system was established.
For example, it can be appropriate to disclose surveillance information to
a law enforcement agency when the purpose of the system is to prevent
and detect crime, but it would not be appropriate to place them on the

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internet in most situations. It may also not be appropriate to disclose
information about identifiable individuals to the media.

Placing such information on the internet incorrectly, or without full

consideration of what is being done, may cause the disclosure of
individuals personal data and sensitive personal data. In severe cases,
this may lead to the ICO taking enforcement action. In 2011 the ICO took
action in a case related to streamed CCTV footage that ended up on the
YouTube website. Information can be released to the media for
identification purposes; this should not generally be done by anyone other
than a law enforcement agency.

This will help you to demonstrate compliance with Guiding Principle 7 of

the POFA code.

NOTE: Even if a system was not established to prevent and detect crime,
it would still be acceptable to disclose information to law enforcement
agencies if failure to do so would be likely to prejudice the prevention and
detection of crime.

Any other requests for information should be approached with care as

wider disclosure may be unfair to the individuals concerned. In some
limited circumstances it may be appropriate to release information to a
third party, where their needs outweigh those of the individuals whose
information is recorded.

Example: A member of the public requests CCTV footage of a car park,

which shows their car being damaged. They say they need it so that
they, or their insurance company, can take legal action. You should
consider whether their request is genuine and whether there is any risk
to the safety of the other people involved.

Are arrangements in place to restrict the disclosure of information in

a manner that is consistent with the purpose for establishing the
system?

ICO tells CCTV website Internet Eyes to make changes following privacy concerns

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 Does anyone who may handle requests for disclosure have clear
guidance on the circumstances in which it is appropriate to make a
disclosure and when it is not?
Do you record the date of the disclosure along with details of who
the information has been provided to (the name of the person and
the organisation they represent) and why they required it?

It is important that if you have surveillance system, or if you are

intending to have a surveillance system, that you have individuals who
are able to use the system to access and extract information where
disclosure is appropriate.

When disclosing surveillance images of individuals, particularly when

responding to subject access requests, you need to consider whether the
identifying features of any of the other individuals in the image need to be
obscured. In most cases the privacy intrusion to third party individuals
will be minimal and obscuring images will not be required. However,
consideration should be given to the nature and context of the footage.

Example: If footage from a camera that covers the entrance to a drug

rehabilitation centre is held, then consider obscuring the images of
people entering and leaving it as this could be considered sensitive
personal data. This may involve an unfair intrusion into the privacy of the
individuals whose information is captured and may cause unwarranted
harm or distress. On the other hand, footage of individuals entering and
exiting a bookshop is far less likely to require obscuring.

It may be necessary to contract obscuring out to another organisation.

Where this occurs, you will need to have a written contract with the
processor that specifies exactly how the information is to be used and
provides you with explicit security guarantees.

Judgements about disclosure should be made by the organisation

operating the surveillance system. They have discretion to refuse any
request for information unless there is an overriding legal obligation, such
as a court order or information access rights (see sections 5.2.3 and
5.2.4). Once you have disclosed information to another body, such as the
police, they become the data controller for the copy they hold. It is their
responsibility to comply with the DPA in relation to any further
disclosures.

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The method of disclosing information should be secure to ensure they are
only seen by the intended recipient.

5.2.3 Subject access requests

Individuals whose information is recorded have a right to be provided with
that information or, if they consent to it, view that information.
Information must be provided promptly and within no longer than 40
calendar days of receiving a request. Providing information promptly is
important, particularly where you may have a set retention period which
will mean that the information will have been routinely deleted if you take
the full 40 calendar days to respond. In such circumstances it is good
practice to put a hold on the deletion of the information.

You may charge a fee of up to 10 (this is the current statutory maximum

set by Parliament). Those who request access must provide you with
details that allow you to identify them as the subject of the information
and also to locate the information on your system. You should consider:

how staff involved in operating the surveillance system will

recognise a subject access request; and
whether internal procedures for handling subject access requests
are in place. This could include keeping a log of the requests
received and how they were dealt with, in case you are challenged.

A clearly documented process will also help guide individuals through such
requests. This should make it clear what information an individual needs
to supply. You should consider:

The details you will need to find the requesters information. This
might include the date, time and location where the footage was
captured, or the vehicle registration mark if theyre requesting
information collected by ANPR cameras
The fee you will charge for supplying the requested information (up
to a maximum of 10) and how should it be paid.
Whether you have effectively labelled information to assist with
retrieval.
How you will provide an individual with copies of the information
held.

It is important to note that where a subject access request is received for

surveillance footage or other information, you are required to provide the

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data subject with a copy of all the information caught by the request that
constitutes their personal data, unless an exemption applies. This must be
done by supplying them with a copy of the information in a permanent
form. There are limited circumstances where this obligation does not
apply.

The first is where the data subject agrees to receive their information in
another way, such as by viewing the footage. The second is where the
supply of a copy in a permanent form is not possible or would involve
disproportionate effort. The ICOs subject access code of practice makes
clear this provision is only likely to be relevant in exceptional cases. If
the data subject refuses an offer to view the footage or the data subject
insists on a copy of the footage, then you must consider ways in which
you can provide the data subject with this information.

It is unlikely that providing an individual with a transcript of the footage

will be enough to comply with a subject access request. This is because a
transcript is unlikely to fully communicate all of the information within the
footage that can be considered the data subjects personal data. You
should always first attempt to provide the footage to the individual, or
invite the data subject to a viewing if they consent to this.

If an individual agrees to a viewing of the footage but subsequently asks

for that footage, it may be necessary, or at least good practice, to provide
this footage where possible. This is particularly true given that your
default position should be to provide footage where requested and the
data subject is entitled to make a further subject access request for the
information anyway, if they choose to.

As mentioned in 5.2.2 where information of third parties is also shown

with the information of the person who has made the access request, you
must consider whether you need to obscure this information taking into
account the considerations discussed in 5.2.2.

For further information on subject access requests, please refer to the

ICOs Subject access code of practice.16

5.2.4 Freedom of information

If you are a public authority then you may receive requests under the
FOIA or Freedom of Information (Scotland) Act 2002 (FOISA). Public
authorities should have a member of staff who is responsible for
responding to freedom of information requests, and understands the

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authoritys responsibilities. They must respond within 20 working days
from receipt of the request.

Section 40 of the FOIA and section 38 of the FOISA contain a two-part

exemption relating to information about individuals. If you receive a
request for surveillance system information, you should consider:

Is the information personal data of the requester? If so, then that

information is exempt from the FOIA and FOISA. Instead this
request should be treated as a data protection subject access
request as explained above.
Is the information personal data of other people? If it is, then the
information can only be disclosed if this would not breach the data
protection principles.

In practical terms, if individuals are capable of being identified from the

relevant surveillance system, then it is personal information about the
individual concerned. It is generally unlikely that this information can be
disclosed in response to a freedom of information request as the
requester could potentially use the information for any purpose and the
individual concerned is unlikely to expect this. This may be unfair
processing in contravention of the DPA.

However, when deciding on whether disclosure is appropriate you can

consider the expectations of the individuals involved, what the
information considered for disclosure would reveal and the legitimate
public interest in the information.

Where you think obscuring images will appropriately anonymise third

party personal data, ie it is reasonably likely that the requestor or anyone
else can identify the individuals whose personal data you wish to protect
(disclosure under FOIA being disclosure to the world), then it may be
appropriate to do this rather than exempting the information.

If you are a public authority who has surveillance systems, you may also
receive requests for information under FOIA relating to those surveillance
systems. For example, requestors may ask for information regarding the
operation of the systems, the siting of them, or the costs of using and
maintaining them.

If this information is held, then consideration will need to be given to

whether or not it is appropriate to disclose this information under FOIA. If

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it is not appropriate to disclose this information then an exemption under
FOIA will need to be used, if one is applicable.3

This is not an exhaustive guide to handling FOI requests4.

Note: Even where footage is exempt from FOIA or FOISA it may be lawful
to provide it on a case-by-case basis without breaching the DPA, where
the reason for the request is taken into account. See section 5.2.2 above
for advice on requests for disclosure.

5.2.5 Retention
The DPA does not prescribe any specific minimum or maximum retention
periods which apply to all systems or footage. Rather, retention should
reflect the organisations purposes for recording information. The
retention period should be informed by the purpose for which the
information is collected and how long it is needed to achieve this purpose.
It should not be kept for longer than is necessary, and should be the
shortest period necessary to serve your own purpose. This should not be
determined simply by the storage capacity of a system.

Example: Footage from a surveillance system shouldnt be kept for five

weeks merely because the manufacturers settings on the surveillance
system allow retention for this length of time.

Where it is not necessary to retain information, for example, it does not

achieve the purpose for which you are collecting and retaining
information, then it should be deleted.

Example: If a supermarket uses an ANPR system to monitor use of its

car park when there is a two hour free parking limit and retains the
details gathered from the ANPR system for those cars that have not
exceeded the parking limit, then this is unnecessary and excessive and
unlikely to comply with the data protection principles. In this example,
the VRM would be the individuals personal data.

3
It is worth noting that the Upper Tribunal (remitted to the First-tier Tribunal)
judgement in Mathieson v IC and Chief Constable of Devon and Cornwall, ruled the
location of ANPR cameras did not have to be disclosed in relation to a request for
information under FOIA where to do so would impact upon national security or the
prevention or detection of crime.
4
For further information on FOIA, including how to handle requests for information,
please refer to the ICOs Guide to Freedom of Information.

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You should not keep information for longer than strictly necessary to meet
your purposes for recording it. On occasion, you may need to retain
information for a longer period, where a law enforcement body is
investigating a crime and ask for it to be preserved, to give them
opportunity to view the information as part of an active investigation.

Example: A system installed to prevent fraud being carried out at an

ATM machine may need to retain images for several weeks, since a
suspicious transaction may not come to light until the victim gets their
bank statement.

Example: A small system in a pub may only need to retain images for a
shorter period of time because incidents will come to light very quickly.
However, if a crime has been reported to the police, you should retain
the images until the police have time to collect them.

Have you decided on the shortest period that you need to retain the
information, based upon your purpose for recording it?

Is your information retention policy documented and understood by

those who operate the system?
Are measures in place to ensure the permanent deletion of
information through secure methods at the end of this period?
Do you undertake systematic checks to ensure that the retention
period is being complied with in practice?
Following this advice will help you to demonstrate that you have
considered Guiding Principle 6 of the POFA code.

5.3 Staying in control

Once you have followed the guidance in this code and set up the
surveillance system, you need to ensure that it continues to comply with
the DPA and the codes requirements in practice. You should:

tell people how they can make a subject access request, who it
should be sent to and what information needs to be supplied with
their request;
give them a copy of this code or details of the ICO website; and

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 tell them how to complain about either the operation of the system
or failure to comply with the requirements of this code.
Staff using the surveillance system or information should be trained to
ensure they comply with this code. In particular, do they know:

What the organisations policies are for recording and retaining

information?
How to handle the information securely?
What to do if they receive a request for information, for example,
from the police?
How to recognise a subject access request and what to do if they
receive one?

All information must be sufficiently protected to ensure that it does not

fall into the wrong hands. This should include technical, organisational
and physical security. For example:

Are sufficient safeguards in place to protect wireless transmission

systems from interception?
Is the ability to make copies of information restricted to appropriate
staff?
Are there sufficient controls and safeguards in place if the system is
connected to, or made available across, a computer, eg an intranet?
Where information is disclosed, how is it safely delivered to the
intended recipient?
Are control rooms and rooms where information is stored secure?
Are staff trained in security procedures and are there sanctions
against staff who misuse surveillance system information?
Have your staff been made aware that they could be committing a
criminal offence if they misuse surveillance system information?
Is the process for deleting data effective and being adhered to?
Have there been any software updates (particularly security
updates) published by the equipments manufacturer that need to
be applied to the system?

Any documented procedures that you produce following on from this code
should be regularly reviewed, either by a designated individual within the

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organisation or by a third party. This is to ensure the standards
established during the setup of the system are maintained.

Similarly, there should be a periodic review, at least annually, of the

systems effectiveness to ensure that it is still doing what it was intended
to do. If it does not achieve its purpose, it should be stopped or modified.

Is it addressing the needs and delivering the benefits that justified

its use?
Is information available to help deal with queries about the
operation of the system and how individuals may make access
requests?
Does the information include your commitment to the
recommendations in this code and include details of the ICO if
individuals have data protection compliance concerns? Is a system
of regular compliance reviews in place, including compliance with
the provisions of this code, continued operational effectiveness and
whether the system continues to meet its purposes and remains
justified?
Are the results of the review recorded, and are its conclusions acted
upon?

Such a review will also help you to demonstrate that you have considered
Guiding Principle 10 of the POFA code.

Example: A CCTV system introduced to deal with persistent anti-social

behaviour during the evenings may no longer be justified if this area of
the town is no longer popular during this time.

6. Selecting and siting surveillance systems

The information collected by a surveillance system must be adequate for
the purpose you are collecting it. The type of surveillance system you
choose and the location it operates within must also achieve the purposes
for which you are using it.

As outlined earlier in this code, you should identify, through a privacy

impact assessment, whether or not a surveillance system is the most
appropriate means of addressing the pressing need. If you decide that a
surveillance system is required then a privacy by design approach should

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be considered when making decisions about which equipment to
purchase; see section 7.4 for more details. You should identify which
equipment will address the pressing need. The equipment should only
collect the necessary information to meet the purpose for which it was
installed.

Example: A CCTV system that allows recording to be switched on and off

easily, and therefore does not have to record continuously, will help
mitigate the potential risk of recording excessive amounts of information.

Both permanent and movable cameras should be sited and image capture
restricted to ensure that they do not view areas that are not of interest
and are not intended to be the subject of surveillance, such as individuals
private property. The cameras must be sited and the system must have
the necessary technical specification to ensure that unnecessary images
are not viewed or recorded, and those that are recorded are of the
appropriate quality.

Example: Check that a fixed camera positioned in winter will not be

obscured by the growth of plants and trees in the spring and summer.

Have you carefully chosen the camera location to minimise viewing

spaces that are not of relevance to the purposes for which you are
using CCTV?
Where CCTV has been installed to deal with a specific problem, have
you considered setting the system up so it only records during the
time when the problem usually occurs? Alternatively, have you
considered other privacy-friendly ways of processing images? For
example, some systems only record events that are likely to cause
concern, such as movement into a defined area. This can also save
on storage capacity.
Will the cameras be sited to ensure that they can produce images of
the right quality, taking into account their technical capabilities and
the environment in which they are placed?
Is the camera suitable for the location, bearing in mind the light
levels and the size of the area to be viewed by each camera?
Are the cameras sited so that they are secure and protected from
vandalism?

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 Will the system produce images of sufficient size, resolution and
frames per second?

In areas where people have a heightened expectation of privacy, such as

changing rooms, cameras should only be used in the most exceptional
circumstances where it is necessary to deal with very serious concerns. In
these cases, you should make extra effort to ensure that those under
surveillance are aware that they are being recorded and that appropriate
restrictions on viewing and disclosing images are in place.

To judge the necessary quality of images, you will need to take into
account the purpose for which CCTV is used and the level of quality
required to achieve the purpose. Guiding principle 8 of the POFA code
provides clear and practical advice on how to identify the requirements of
a surveillance camera system. The ICO would recommend and expect you
to comply with the same standards as recommended in this principle.

7. Surveillance technologies other than CCTV

systems
Surveillance systems have advanced greatly since the last version of this
code was published. This section covers some of the recently developed
surveillance technologies and how to approach them. While the
technologies covered in this section present new issues, the
recommendations throughout the rest of this code will still be relevant.

The way the information collected by these technologies can be linked or

matched together means that surveillance technologies are becoming
more interconnected. This presents further issues with regards to peoples
personal data. If you are intending to match data together from different
systems, you will need to be careful that the information you are
collecting is accurate and not excessive. You should also pay attention to
Guiding Principle 12 of the POFA code if you are a relevant authority
under the POFA.

It is possible for data collected by a range of surveillance systems to be

integrated into broader big data processing systems operated by
organisations. This has implications in terms of profiling, what can be
learnt about individuals and how decisions are made about them. The ICO
published a report on the data protection implications of big data in 2014
that covers this issue in further detail.

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While they may not be data controllers under the DPA, the ICO also
recommends that the vendors and developers of these new emerging
technologies consider privacy impact assessments and a privacy by
design approach when developing their systems for market. There is also
a case for the systems instructions or manuals to include information
highlighting the importance of addressing data protection compliance.

7.1 ANPR system

The capabilities of ANPR systems and their use have increased since the
last revision of this code. The amount of data collected, analysed and
used, the increased ease with which ANPR systems can now be linked to
databases, the increasing affordability of these systems, and its increased
use in both the public and private sector, means that it is a technology
that requires particular attention.

If you are using or intend to use an ANPR system, it is important that you
undertake a privacy impact assessment to justify its use and show that its
introduction is proportionate and necessary. This is particularly important
given the significant amounts of information an ANPR system can collect.
For example, is the system just recording vehicle registration marks? Or
is it recording images of vehicles, occupants or patch plates as well? If
its the latter, make sure the amount of information being collected is
justifiable.

When storing the information and cross referencing it with other

databases to identify individuals, you will need to ensure that these
databases are kept up-to-date and accurate and are of sufficient quality
to prevent mismatches. If you are sharing the personal data you process
with third parties you will need to make sure that you have a data sharing
agreement with them. This agreement should ensure that the appropriate
safeguards are in place to keep the information secure.

You will need to ensure that you have retention periods in place for the
personal data which you collect and store. The retention period should be
consistent with the purpose you are collecting the data for. The
information should be kept for the minimum period necessary and should
be deleted once it is no longer needed.

Given the significant amounts of information that ANPR systems are able
to collect, it is important that individuals are informed that their personal
data is being processed. The best way to do this is through signage

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explaining that ANPR recording is taking place and, if possible to do so,
the name of the data controller collecting the information. While it is a
challenge to inform motorists that they are being monitored, there are
methods you can use, such as the Town and Country Planning Act
(control of advertisements) Regulations 2007, to help provide this
information (see section 9.1.2 for further detail).

7.2 Body worn video (BWV)

BWV involves the use cameras that are worn by a person and are usually
attached to their clothing or uniform. These devices can often record both
visual and audio information. They are increasingly used across different
sectors, most commonly by law enforcement agencies, but their reducing
cost means that even small businesses and the public are increasingly
able to purchase and use such equipment.

BWV systems are likely to be more intrusive than the more normal CCTV
style surveillance systems because of its mobility. Before you decide to
procure and deploy such a system, it is important that you justify its use
and consider whether or not it is proportionate, necessary and addresses
a pressing social need. If you are going to use audio recording as well as
visual recording, the collection of audio and video needs to be justifiable.
It is highly recommended that you undertake a privacy impact
assessment to demonstrate that this is the case.

BWV devices have the ability to be switched on or off, but it is important

to know when and when not to record. Continuous recording will require
strong justification as it is likely to be excessive and cause a great deal of
collateral intrusion. This is because continuous recording is likely to
capture people going about their daily business, as well as the individual
who is the focus of your attention. Remember that the presence of audio
recording adds to the privacy intrusion (further detail on audio recording
can be found in section 8 of this code). Further justification will be
required if you are thinking of recording in more sensitive areas, such as
private dwellings, schools, care homes etc. The pressing social need will
have to be far greater in order for the use of BWV systems to be
necessary and proportionate. This will require the operator to provide
more evidence to support its use in this situation.

Example: It may be appropriate for a Parking Enforcement Officer to

switch on their BWV camera when they believe an individual is being
aggressive or there is the potential for aggression. However, it would not

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be appropriate to switch it on when an individual is merely asking for
directions.

If you want to use a BWV system that includes both video and audio
recording, the most privacy friendly approach is to a purchase a system
where video and audio recording can be controlled and turned on and off
independently of each other. These two types of data processing should
be considered as separate data streams and consideration should
therefore be given to controlling them separately to ensure that irrelevant
or excessive data is not obtained and held. Organisations may feel
constrained by what is available on the market in terms of independent
controls for audio and video, however this does not preclude
organisations specifying the features they require and getting system
providers to respond to these demands. The ICO also recommends that
system manufacturers consider the advice contained in this code.

Where your BWV system cannot record audio and video separately, it
should only be used where the recording of audio and video together can
be justified. This is important as there will be situations where either
audio recording or visual recording will be more intrusive (generally audio
recording is likely to be more intrusive but visual recording may be more
intrusive in particular situations, for example, where you encounter
somebody in a state of undress). You should therefore assess both visual
and audio recording for their privacy intrusion. It is therefore important
that you identify a BWV system which has the ability to be controlled in
such a manner at the procurement stage, or request a bespoke system be
produced that has this ability.

Individuals using BWV systems should be able to provide sufficient fair

processing to data subjects. As BWV cameras can be quite small or
discreet, and could be recording in fast moving or chaotic situations,
individuals may not be aware that they are being recorded. It is therefore
important that clear signage is displayed, for example on an individuals
uniform, to show that recording is taking place and whether the recording
includes audio. You should also think of ways to provide further
information to data subjects if they wish to find out more information, for
example, directing them to the privacy notice on your website, if you
have one.

Because of the volume of personal data and potentially sensitive personal

data that BWV cameras will process and the portability of them, it is

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important that you have appropriately robust technical and physical
security in place to protect this information. For example, make sure
devices can be encrypted, or where this is not appropriate have other
ways of preventing unauthorised access to information.

However, BWV cameras are part of a larger workflow of information. You

will need to make appropriate decisions about retention and disposal. As
you may be recording a large amount of information, you need to ensure
that you can store all of it and have a retention and disposal policy in
place. The policy must set out how long the information should be kept
for (this should be the minimum amount of time necessary to fulfil its
original purpose) and when it should be disposed of, so that you do not
hold excessive amounts of personal data. You should also consider
whether you need to retain all of the footage captured by a device, or
whether extracting short clips would be more appropriate.

The information should be stored so that recordings relating to a specific

individual or event can be easily identified, located and retrieved. You
should also store the data in a way that remains under your sole control,
retains the quality of the original recording and is adequate for the
purpose for which it was originally collected.

You should continue to monitor the use of the BWV system as a whole to
see if it is still achieving its original purpose. If it appears that it is no
longer achieving this purpose or it is no longer required, you should look
at potentially less privacy intrusive methods to address the need.

If you are regularly going to share recorded information with third parties
then it is important that you have a data sharing agreement in place with
them.5

7.3 Unmanned Aerial Systems (UAS)

UAS refer to the whole system under which unmanned aerial vehicles
(UAV) operate. They are also referred to using different names such as
Remotely Piloted Aircraft Systems (RPAS) and drones. UAV are unmanned
vehicles which, if fitted with a camera, are capable of recording images
whilst airborne. These devices can vary in size from the very large, up to
the size of a plane, to the very small, which can be the size of a remote
control plane or helicopter. They were first used by the military, but are
now much more affordable and, as with BWV systems, the smaller

5
For more advice on the use of BWV systems please see the College of Policings
guidance

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devices can be easily purchased by businesses and members of the
public.

A distinction should be drawn between those individuals who can be

considered as hobbyists and are therefore generally using their device
for domestic purposes, and those individuals or organisations who use the
device for professional or commercial purposes. Where UAS are used for
non-domestic purposes, operators will need to comply with data
protection obligations and it will be good practice for domestic users to be
aware of the potential privacy intrusion which the use of UAS can cause to
make sure theyre used in a responsible manner.

Example: A business may purchase UAS to monitor inaccessible areas,

such as a roof to check for damage. Its use should be limited to that
specific function and recording should not occur when flying over other
areas that may capture images of individuals.

The use of UAS have a high potential for collateral intrusion by recording
images of individuals unnecessarily and therefore can be highly privacy
intrusive, ie the likelihood of recording individuals inadvertently is high,
because of the height they can operate at and the unique vantage point
they afford. Individuals may not always be directly identifiable from the
footage captured by UAS, but can still be identified through the context
they are captured in or by using the devices ability to zoom in on a
specific person. As such, it is very important that you can provide a
strong justification for their use. As with all of the other technologies
discussed in this section, performing a robust privacy impact assessment
will help you decide if using UAS is the most appropriate method to
address the need that you have identified.

As with other technologies discussed, it is important that the recording

system on UAS can be switched on and off when appropriate. This is
particularly important given the potential for the cameras to capture large
numbers of individuals from a significant height. Unless you have a strong
justification for doing so, and it is necessary and proportionate, recording
should not be continuous. This is something which you should look at as
part of the privacy impact assessment.

UAS cover the whole system, rather than just the device in the air, so you
need to ensure that the whole system is compliant. You should ensure
that any data which you have collected is stored securely, for example by

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using encryption or another appropriate method of restricting access to
the information. You should also ensure that data is retained for the
minimum time necessary for its purpose and disposed of appropriately
when no longer required.

You may be able to reduce the risk of collateral intrusion by incorporating

privacy by design methods. For example, you may be able to procure a
device that has restricted vision so that its focus is only in one place.
Privacy by design can be incorporated into your privacy impact
assessment and can form part of your procurement process.

One major issue with the use of UAS is the fact that on many occasions,
individuals are unlikely to realise that they are being recorded, or may not
know that UAV have a camera attached. The challenge of providing fair
processing information is something that you must address if you decide
to purchase UAS.

You will need to come up with innovative ways of providing this

information. For example, this could involve wearing highly visible
clothing identifying yourself as the UAS operator, placing signage in the
area you are operating UAS explaining its use and having a privacy notice
on a website that you can direct people to, or some other form of privacy
notice, so they can access further information.

Although these issues are the same as for any aerial vehicle with an
attached camera, we have focused here on how UAS can be used as they
are a novel device with the potential for a greater impact on privacy

7.4 Automated recognition technologies

The use of technologies to identify individuals faces, the way that they
walk or their eye movements, for example when they are looking at
advertising, are being increasingly used by organisations. These types of
technologies attract the same data protection concerns as those discussed
already in this code. If you are thinking of using these systems you must
provide fair processing information to data subjects. If you are storing
this information you will also need to have an appropriate retention and
disposal schedule and have suitable technological and physical security
measures in place.

If you are using cameras to identify peoples faces, you must ensure that
you use high quality cameras to make sure you are capturing the
individual accurately enough to fulfil the intended purpose. The results of

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this automatic matching should be monitored by a trained individual to
ensure that there havent been any mismatches.

Any use of these automated technologies should involve some level of

human interaction and should not be done on a purely automated basis.

7.5 Privacy impact assessments and privacy by design

Clearly all of these technologies have the potential to be privacy intrusive.
None of these devices should be purchased merely because they are
available, affordable or in the belief that it will garner public approval.

It is very important that you perform a privacy impact assessment. As

mentioned earlier in this document, the ICO has produced a code of
practice which can help you do this, conducting privacy impact
assessments code of practice. You will need to consider the privacy
issues involved with using these new surveillance systems and see if their
use would be necessary and proportionate and address a pressing need
that you have identified. You should consider less privacy intrusive
methods of achieving this need where possible. Privacy impact
assessments are also beneficial because consultation is a key element of
the process; this will help you to understand the publics reaction to your
proposal and peoples views about potential privacy intrusion.

If you are using these devices, you should incorporate privacy by design
features. This should be in your criteria for procuring the device and in
the decisions you make about deployment and configuration. For
example, you should make sure the equipment has the ability to be
switched on or off, if this is appropriate, so that recording is not
continuous, or be able to switch off either image or sound recording
independently of each other where to capture of both would be excessive.
Unless continuous recording can be shown to be justified, you should only
record when it is necessary and is done for the specific purpose it is being
used for. The equipment must also be of sufficient quality and standard to
achieve its stated purpose.

Example: A car park operator is looking at whether to use ANPR to

enforce parking restrictions. A privacy impact assessment is undertaken
which identifies how ANPR will address the problem, the privacy
intrusions and the ways to minimise these intrusions, such as information
being automatically deleted when a car that has not contravened the
restrictions leaves a car park.

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7.6 Privacy notices
It is clear that these and similar devices present more difficult challenges
in relation to providing individuals with fair processing information, which
is a requirement under the first principle of the DPA. For example, it will
be difficult to ensure that an individual is fully informed of this information
if the surveillance system is airborne, on a person or, in the case of ANPR,
not visible at ground level or more prevalent then it may first appear.

However, these are issues that must be tackled as you are unlikely to
comply with the data protection principles unless you make all reasonable
efforts to provide fair processing information. If you are considering using
such devices, you will need to come up with appropriate and potentially
innovative ways of informing individuals of their rights.

Example: In addition to more traditional methods, it may be useful to

use social media to inform individuals that certain types of surveillance
systems are in operation at a specific time and in a specific area. Further
links can be provided to privacy notices so that data subjects can find out
more information if they are interested. This would essentially function as
a layered privacy notice.

One of the main rights that a privacy notice helps deliver is an individuals
right of subject access. If you have decided that you are going to use
these devices you will need to have the ability to provide information to
requestors, be able to obscure or edit the information where necessary
and have staff trained to deal with the different issues that may arise
when responding to a subject access request. If youre a public authority
you will also need to consider your response to freedom of information
requests.

8. Using the equipment

It is important that a surveillance system produces information that is of
a suitable quality to meet the purpose for which it was installed. If
identification is necessary, then poor quality information that does not
help to identify individuals may undermine the purpose for installing the
system.

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 Does your recording system produce good clear quality information?
Will the quality of the information be maintained throughout the
recording process?
Have you considered the compression settings for recording
material? In a digital system, a high level of compression will result
in lower picture quality on playback.
Have you set up the recording medium in such a way that
information cannot be inadvertently corrupted?
Is there a regular check that the date and time stamp recorded on
images is accurate (for example, when the UK switches between
summer and winter time)?
Has a regular maintenance regime been set up to ensure that the
system continues to produce high quality information?
Have you ensured that your wireless transmission system is suitably
secure, if one is used? If necessary, do you have the ability to
encrypt information?
As with ANPR systems where existing matching databases are used,
have you ensured their accuracy? Do you have procedures in place
for the continued monitoring of databases accuracy? Guiding
Principle 12 of the POFA code addresses this issue.

The Surveillance Camera Commissioner is responsible under the POFA

code for providing advice on recommended operational, technical and
occupational competency standards.

Surveillance systems should not normally be used to record conversations

between members of the public as this is highly intrusive and unlikely to
be justified. You should choose a system without this facility if possible. If
your system comes equipped with an independent sound recording facility
then you should turn this off or disable it in some other way, unless you
can clearly justify its use with robust supporting evidence. If you cannot
control sound recording separately you will need to consider how privacy
intrusive the system is as a whole, including the recording of sound.

Example: Where you are considering using an audio capability on a BWV

system, have you considered whether this is appropriate in a privacy
impact assessment and if so, have you mitigated the level of intrusion by
using privacy by design?

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The use of audio recording, particularly where it is continuous, will, in
most situations, be considered more privacy intrusive than purely visual
recording. Its use will therefore require much greater justification. Audio
recording should only be used where:

You have identified a need or issue which can be characterised as a

pressing social need and can evidence that this need must be
addressed.

1. You have considered other less privacy intrusive methods of

addressing the need.
2. Having reviewed the other less privacy intrusive methods, you have
concluded that these will not appropriately address the identified
issue and the only way to address the issue is through the use of
audio recording.
3. You should ensure that at the point of purchase of the audio system
all appropriate privacy by design methods have been incorporated
into the system. If you have already bought the system, you should
look to see if you can incorporate any privacy by design
technologies.
4. If you are using audio recording you should make sure that the
system you have bought provides a high enough quality of
recording to achieve your stated aim.
5. You should make it clear to data subjects that audio recording is
taking place, over and above any visual recording which is already
occurring.
6. The best way to make sure these requirements are met is to carry
out a thorough privacy impact assessment. (Please also see section
7.2 for specific detail on audio recording in relation to BWV
systems).

Below are some examples of where audio monitoring and recording may
be justified. However, if you can evidence that you have gone through the
process above, you may be able to justify other uses of audio recording.
Audio based alert systems, such as those triggered by changes in
noise patterns such as sudden shouting. Conversations must not be
recorded, and operators should not listen in.
Two-way audio feeds from help points covered by CCTV cameras,
where these are activated by the person requiring assistance.

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 Conversations between staff and particular individuals where a
reliable record is needed of what was said so it might be used as
evidence in an investigation, such as in the charging area of a police
custody suite.
Where recording is triggered due to a specific threat.

This advice reflects the decision in the case involving Southampton City
Council (the council) in which the ICO issued an enforcement notice to the
council ordering it to stop requiring taxis to carry out continuous video
and audio recording in order to gain a license to operate in the city. The
ICO and ultimately the First-Tier Tribunal (Information Rights) considered
this to be a breach of principle one of the DPA, ruling that the measure
was disproportionate and not justified under article 8 of the HRA (the
right to private life). The argument above would similarly apply to other
forms of public transport, unless clear justification for continuous
recording can be provided.

Some CCTV has the ability to broadcast messages to those under

surveillance. You should only use this option when the messages directly
relate to the purpose for which the system was installed.
If there is an audio monitoring or recording capability and its use is
not well justified has this been disabled?
If an audio based alert system is being used are measures in place
to prevent conversations being monitored or recorded?
If there are audio communications with help points, are these
initiated by those requiring assistance?
If a message broadcast facility is used, are the messages limited to
those consistent with the original purpose for establishing the
system?

9. Responsibilities
9.1 Letting people know
You must let people know when they are in an area where a surveillance
system is in operation.

The most effective way of doing this is by using prominently placed signs
at the entrance to the surveillance systems zone and reinforcing this with
further signs inside the area. This message can also be backed up with an

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audio announcement, where public announcements are already used,
such as on a train.

Clear and prominent signs are particularly important where the

surveillance systems are very discreet, or in locations where people might
not expect to be under surveillance. As a general rule, signs should be
more prominent and frequent in areas where people are less likely to
expect that they will be monitored by a surveillance system. This is
particularly important when an ANPR system is being used that covers a
large area.

In exceptional circumstances where audio recording is being used, this

should be stated explicitly and prominently. It should also be clearly
stated if audio recording is used for a different or further purpose than
visual recording.

Signs should:
be clearly visible and readable;
contain details of the organisation operating the system, the
purpose for using the surveillance system and who to contact about
the scheme (where these things are not obvious to those being
monitored);
include basic contact details such as a simple website address,
telephone number or email contact; and

be an appropriate size depending on context. For example, whether they

are viewed by pedestrians or car drivers.

Signs do not need to say who is operating the system if this is obvious. If
a surveillance system is installed within a shop, for example, it will be
obvious that the shop is responsible. All staff should know what to do or
who to contact if a member of the public makes an enquiry about the
surveillance system.

Example: Images are being monitored and recorded for the purposes of
crime prevention and public safety. This scheme is controlled by
Greentown Borough Council. For more information, call 01234 567890.

Do you have signs in place informing people that CCTV is in

operation?
Do your signs convey the appropriate information?

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Guiding Principle 3 of the POFA code promotes transparency and regular
engagement with those that are likely to be monitored. This is a vital part
of assessing whether any surveillance is justified and that its purpose is
understood.

It is also recommended in most FOIA publication scheme definition

documents that the location of CCTV systems should be published.

9.1.2 Signs on roads

Appropriate signs must be provided to alert drivers to the use of cameras
on the road network or in areas that vehicles have access to, such as car
parks. It is important that these signs do not affect the safety of road
users. You should consider the amount of time the driver will have to read
the information you provide; particularly where the road has a high speed
limit. Signs must make clear that cameras are in use and explain who is
operating them, so that individuals know who holds information about
them and therefore have the opportunity to make further enquires about
what is happening with their data. Where authorised signs under road
traffic sign regulations are used and these dont explain which
organisation is operating the cameras then supplementary signs should
be used such as those permitted by Town and Country Planning (control
of advertisements) Regulations 2007.

9.2 Other responsibilities

Staff operating a surveillance system also need to be aware of two further
rights that individuals have under the DPA. They need to recognise a
request from an individual to prevent processing likely to cause
substantial and unwarranted damage or distress (s10 DPA) and one to
prevent automated decision-taking in relation to the individual (s12 DPA).

Experience has shown that the operators of surveillance systems are

highly unlikely to receive such requests. If you do, guidance on these
rights is available from the Information Commissioners Office.6

If the surveillance system covers a public space, the organisation

operating the system should be aware of the possible licensing
requirements imposed by the Security Industry Authority.

6
How can I stop them processing my personal information? and Preventing decisions
based on automated processing of personal information can both be found on the ICO
website: www.ico.org.uk. You may also wish to consult our Legal Guidance.

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A public space surveillance (CCTV) licence is required when operatives are
supplied under a contract for services. Under the provisions of the Private
Security Industry Act 2001, it is a criminal offence for staff to be
contracted as public space surveillance CCTV operators in England, Wales,
Northern Ireland and Scotland without an SIA licence.
Do the relevant staff know how to deal with any request to prevent
processing or prevent automated decision making and where to
seek advice?
Have you satisfied any relevant licensing requirements?

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Appendix 1
The Data Protection Act 1998: data protection principles
1. Personal data shall be processed fairly and lawfully and, in particular, shall not
be processed unless-

(a) at least one of the conditions in Schedule 2 is met, and

(b) in the case of sensitive personal data, at least one of the conditions in
Schedule 3 is also met.

2. Personal data shall be obtained only for one or more specified and lawful
purposes, and shall not be further processed in any manner incompatible with
that purpose or those purposes.

3. Personal data shall be adequate, relevant and not excessive in relation to the
purpose or purposes for which they are processed.

4. Personal data shall be accurate and, where necessary, kept up to date.

5. Personal data processed for any purpose or purposes shall not be kept for
longer than is necessary for that purpose or those purposes.

6. Personal data shall be processed in accordance with the rights of data

subjects under this Act.

7. Appropriate technical and organisational measures shall be taken against

unauthorised or unlawful processing of personal data and against accidental loss
or destruction of, or damage to, personal data.

8. Personal data shall not be transferred to a country or territory outside the

European Economic Area unless that country or territory ensures an adequate
level of protection for the rights and freedoms of data subjects in relation to the
processing of personal data.

This is not a full explanation of the principles. For more general information, see
our Legal Guidance1.

1 The ICOs Data Protection Act 1998 Legal Guidance is available on the ICO website:
www.ico.org.uk

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Appendix 2
Checklist for users of limited CCTV systems
monitoring small retail and business premises
This CCTV system and the images produced by it are controlled by ..
who is responsible for how the system is used and for notifying the Information
Commissioner about the CCTV system and its purpose (which is a legal
requirement of the Data Protection Act 1998)1.

We () have considered the need for using CCTV and have decided it is
required for the prevention and detection of crime and for protecting the safety
of customers. It will not be used for other purposes. We conduct an annual
review of our use of CCTV.

Checked By Date of next

(Date) review

Notification has been submitted to the

Information Commissioner and the next
renewal date recorded.

There is a named individual who is

responsible for the operation of the
system.

The problem we are trying to address has

been clearly defined and installing cameras
is the best solution. This decision should be
reviewed on a regular basis.

A system has been chosen which produces

clear images which the law enforcement
bodies (usually the police) can use to
investigate crime and these can easily be
taken from the system when required.

Cameras have been sited so that they

provide clear images.

Cameras have been positioned to avoid

capturing the images of persons not

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visiting the premises.

There are visible signs showing that CCTV

is in operation. Where it is not obvious who
is responsible for the system contact
details are displayed on the sign(s).

Images from this CCTV system are

securely stored, where only a limited
number of authorised persons may have
access to them.

The recorded images will only be retained

long enough for any incident to come to
light (eg for a theft to be noticed) and the
incident to be investigated.

Except for law enforcement bodies, images

will not be provided to third parties.

The potential impact on individuals privacy

has been identified and taken into account
in the use of the system.

The organisation knows how to respond to

individuals making requests for copies of
their own images. If unsure the controller
knows to seek advice from the Information
Commissioner as soon as such a request is
made.

Regular checks are carried out to ensure

that the system is working properly and
produces high quality images.

Please keep this checklist in a safe place until the date of the next
review.

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1 Not all small businesses need to notify. Current notification requirements can be found at

www.ico.org.uk/what_we_cover/data_protection/notification.aspx

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Appendix 3
The guiding principles of the Surveillance Camera Code
of Practice
System operators should adopt the following 12 guiding principles:

Use of a surveillance camera system must always be for a specified purpose

which is in pursuit of a legitimate aim and necessary to meet an identified
pressing need.

The use of a surveillance camera system must take into account its effect on
individuals and their privacy, with regular reviews to ensure its use remains
justified.

There must be as much transparency in the use of a surveillance camera system

as possible, including a published contact point for access to information and
complaints.

There must be clear responsibility and accountability for all surveillance camera
system activities including images and information collected, held and used.

Clear rules, policies and procedures must be in place before a surveillance

camera system is used, and these must be communicated to all who need to
comply with them.

No more images and information should be stored than that which is strictly
required for the stated purpose of a surveillance camera system, and such
images and information should be deleted once their purposes have been
discharged.

Access to retained images and information should be restricted and there must
be clearly defined rules on who can gain access and for what purpose such
access is granted; the disclosure of images and information should only take
place when it is necessary for such a purpose or for law enforcement purposes.

Surveillance camera system operators should consider any approved

operational, technical and competency standards relevant to a system and its
purpose and work to meet and maintain those standards.

Surveillance camera system images and information should be subject to

appropriate security measures to safeguard against unauthorised access and
use.

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There should be effective review and audit mechanisms to ensure legal
requirements, policies and standards are complied with in practice, and regular
reports should be published.

When the use of a surveillance camera system is in pursuit of a legitimate aim,

and there is a pressing need for its use, it should then be used in the most
effective way to support public safety and law enforcement with the aim of
processing images and information of evidential value.

Any information used to support a surveillance camera system which compares

against a reference database for matching purposes should be accurate and kept
up to date.

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