Fragmentation of Australia's Public Sector Privacy Laws

1. Recent cases: Is there fragmentation of Australia's public sector privacy laws? Professor Graham Greenleaf UNSW Faculty of Law - 22 May 2003 NSW Freedom of Information and Privacy Practitioners Network

2. Public sector privacy laws • Variations so far • Commonwealth / ACT - IPPs • NSW - NSW IPPs • Vic & NT (and private sector) - NPPs • Superficial similarities in aims • All based on life-cycle of information • Significant differences in details • Little case law except new NSW cases - major differences already emerging

3. Examples and recent cases • Collection from the data subject • DO v University of New South Wales [2002] NSWADT 211; [2003] NSW ADTAP 9 • Consent exception- express or implied • FM v Macquarie University [2003] NSWADT 78 • Minimal collection - anonymity • Wykanak v Dept Local Govt [2002] NSWADT 208 • FH v NSW Dept Corrective Services [2003] NSWADT 72 • Are records required before Acts apply? • FM v Macquarie University [2003] NSWADT 78

4. Collection from the data subject • Some laws require collection from the data subject, but they differ considerably • Cth IPPs impose no obligation to do collect from the individual, no consent needed to collect from 3rd Ps • NPP 1.4 requires collection only from individual ‘if it is reasonable and practicable to do so’ • NSW s9 requires collection directly from individual unless • 3rd P collection is authorised by the individual; or • Provided by parent/guardian if under 16 • DO v University of New South Wales [2002] NSWADT 211 • UNSW did have authorisation to collect from 3rd Ps • Iillustrates risks under NSW Act • It is OK to ‘double check’ with a 3rd P - collection from both

5. Consent exception • Cth IPPs and NPPs - implied consent • ‘express consent or implied consent’ (Cth PA s6, also Vic) • Consent must also be informed ( meaning of ‘consent’) • Can consent be implied from failure to opt out? • NSW s26(2) requires express consent • Failure to opt out could never be good enough • FM v Macquarie University [2003] NSWADT 78 • Consent to UNSW to collect transcript from UNSW was implied consent to Macquarie to disclose it, but that is not express consent • Cf NZ requires ‘authorization’ • NZ Courts (L v J, L v L) have held this includes implied authorizations (see Roth article)

6. Minimal collection - anonymity • NPP 8 - ‘Wherever lawful and practicable, individuals must have the option of not identifying themselves when entering transactions with an organisation’ - no direct NSW equiv. • Is it a breach to build systems which make anonymity impracticable? Does NPP8 require anonymity to be ‘designed in’? • FH v NSW Dept Corrective Services [2003] NSWADT 72 - • Equivocal on whether breach of security principle where it would cost millions for Dept to change system to log accesses • Wykanak v Dept Local Govt [2002] NSWADT 208 (summary) • ADT could not review a complaint of an anticipated breach of a NSW IPP • Compare Cth IPPs or NPPs - s98 Injunctions available where ‘a person … is proposing to engage in any conduct that … would constitute a contravention of this Act’

7. 'Records' / 'documents’ • Significance in Commonwealth Privacy Act • Cth IPPs all require information in ‘records’ or a ‘generally available publication’ • NPPs don’t, but s16B has same effect • One of the dividing lines between information privacy and surveillance laws • Problems - compare Cth and NSW results • Interview with no notes taken • CCTV with no film • Listening device with no recording

8. 'Records' / 'documents’ (2) • Other jurisdictions requiring records / documents • Victoria • S3 definition ‘personal information’ - ‘means information … that is recorded in any form …’ • Northern Territory • S4 definition ‘personal information’ means ‘government information from which …’ • S4 definition ‘government information’ means ‘a record held …’ • Hong Kong • s2 definition 'data' is only 'any representation of information, in any document'. • 'document' includes disks, film etc from which visual images or other data are 'capable ...of being reproduced’

9. 'Records' / 'documents’ (3) • New South Wales - the odd one out • S4 defn ‘personal information’ means ‘information or an opinion (….whether or not recorded in a material form) …’ - cannot imply a record from the definition • NSW IPPs all refer to ‘personal information’ (contrast Cth IPPs require ‘in a record’) • No equivalent to Cth s16B re NPPs • All NSW IPPs therefore apply to all personal information whether or not it is ever recorded • IPPs only require that agency must ‘collect’ or ‘hold’ personal information

10. 'Records' / 'documents’ (4) • FM v Macquarie University [2003] NSWADT 78 • Hennessy Dep P (on appeal) • S18 breach by Macq’s disclosure to UNSW of information in 2 telephone conversations • Information was observations of FM and opinions about him • The information was never recorded by Macq • Held - Was ‘personal information’ even though FM’s behaviour was observed by others • Held - Info was ‘held’ in the mind of Macq staff • s4(4) defines ‘held’ as ‘possession or control’ • ‘Possess’ must include ‘in the mind’ for non-material information • Order - Macq staff must not disclose any information in their minds about students, unless s18 exemption applies