REFERENCE ACTION ANALYST STAFF DIRECTOR or BUDGET/POLICY CHIEF. 2) Economic Development & Tourism Subcommittee 11 Y, 0 N Lukis Duncan
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1 HOUSE OF REPRESENTATIVES STAFF ANALYSIS BILL #: CS/HB 197 Tracking Devices r Applicatins SPONSOR(S): Criminal Justice Subcmmittee and Metz TIED BILLS: Nne IDEN./SIM. BILLS: SB 282 REFERENCE ACTION ANALYST STAFF DIRECTOR r BUDGET/POLICY CHIEF 1) Criminal Justice Subcmmittee 12 Y, 0 N, As CS Keegan Cunningham 2) Ecnmic Develpment & Turism Subcmmittee 11 Y, 0 N Lukis Duncan 3) Judiciary Cmmittee SUMMARY ANALYSIS Chapter 934, F.S., gverns the security f electrnic and telephnic cmmunicatins and the prcedural requirements fr searching and mnitring such cmmunicatins. Flrida law des nt currently prhibit a persn frm installing a tracking device r tracking applicatin n anther persn s prperty withut the ther persn s cnsent. The bill creates the fllwing definitins: Business entity means any frm f crpratin, partnership, assciatin, cperative, jint venture, business trust, r sle prprietrship that cnducts business in this state. "Tracking applicatin" means any sftware prgram whse primary purpse is t track r identify the lcatin r mvement f an individual. "Tracking device" means any device whse primary purpse is t reveal its lcatin r mvement by the transmissin f electrnic signals. Persn means an individual and des nt mean a business entity. The bill creates a new sectin f statute making it a secnd degree misdemeanr fr a persn t install a tracking device r tracking applicatin n anther persn s prperty withut the ther persn s cnsent. This prhibitin des nt apply t: a law enfrcement fficer r law enfrcement agency that lawfully installs a tracking device r tracking applicatin n anther persn s prperty as part f a criminal investigatin; a parent r legal guardian f a minr child that installs a tracking device r tracking applicatin n the minr child s prperty if: the parents r legal guardians are lawfully married t each ther and are nt separated r therwise living apart, and either parent r legal guardian cnsents t the installatin f the tracking device r tracking applicatin; the parent r legal guardian is the sle surviving parent r legal guardian f the minr child; the parent r legal guardian has sle custdy f the minr child; r the parents r legal guardians are divrced, separated, r therwise living apart and bth cnsent t the installatin f the tracking device r tracking applicatin; a caregiver f an elderly persn r disabled adult, if the elderly persn r disabled adult s treating physician certifies that such installatin is necessary t ensure the safety f the elderly persn r disabled adult; r a persn acting in gd faith n behalf f a business entity fr a legitimate business purpse. The bill creates a new secnd degree misdemeanr, which is punishable by up t 60 days in cunty jail and a $500 fine. This may have a negative jail bed impact. The bill is effective n Octber 1, This dcument des nt reflect the intent r fficial psitin f the bill spnsr r Huse f Representatives. STORAGE NAME: h0197c.edts
2 A. EFFECT OF PROPOSED CHANGES: Present Situatin Tracking Electrnic Devices FULL ANALYSIS I. SUBSTANTIVE ANALYSIS Cellular Phne Tracking Any time a cellular phne is n, it will peridically send a signal t the lcal base statin 1 t verify the strength f the phne s cnnectin t the prvider netwrk. 2 Cellular phnes als cmmunicate back and frth with base statins during phne calls. 3 Prviders divide their service area up amng base statins in the area, and the cellular phne cmmunicates with different nearby base statins as the user mves arund the service area. 4 Prviders keep clse track f which base statins a phne cmmunicates with s the prvider knws which base statins t send phne calls t. 5 The electrnic recrd created by a cellular phne cmmunicating with a base statin is ften referred t as cell site lcatin infrmatin (hereinafter CSLI ). 6 CSLI is als used by cellular prviders t transmit lcatin data fr cellular phnes that dial The Federal Cmmunicatins Cmmissin (hereinafter FCC ) develped the Enhanced 911 prgram (hereinafter E911) t ensure that wireless carriers prvide lcatin infrmatin t 911 dispatchers when a 911 call is placed frm a cellular phne. 8 Over time the FCC has created mre stringent requirements fr cellular prviders that currently require specific lcatin data such as latitude and lngitude f the 911 caller. 9 In similar frm t the FCC requirements, Flrida law requires the establishment f a statewide E911 prgram requiring prviders t rute 911 calls t the crrect public safety answering pints. 10 This is accmplished by selective ruting based n the gegraphical lcatin frm which the call riginated, and requiring prviders t create autmatic number identificatin and autmatic lcatin-identificatin features. 11 GPS Tracking The Glbal Psitining System (hereinafter GPS ) is a system f twenty-fur perating satellites that rbit the earth and transmit radi signals. 12 The GPS system is perated by the United States Air Frce, 13 and is used fr civilian applicatins as well as natinal security and military peratins. 14 GPS can be used fr tracking and lcating cellular phnes that are equipped with hardware that can receive 1 The base statin is the device r cmmunicatins twer that transmits cellular radi signals s a telephne call can be made wirelessly. These twers are als referred t as cellular twers. See IEEE Glbal Histry Netwrk, Base Statins, (last visited Jan. 22, 2015). 2 ECPA Refrm and the Revlutin in Lcatin Based Techs. & Servs. befre the Subcmm. n the Cnstitutin, Civil Rights & Civil Liberties, 111th Cng (testimny f Matt Blaze, Assc. Prf., Univ. Pa.). 3 Id. at Id. at Id. at In re Applicatin f U.S. fr an Order Directing a Prvider f Elec. Cmmc n Serv. t Disclse Recrds t the Gv t, 620 F.3d 304 (3d Cir. 2010). 7 Federal Cmmc ns Cmm n, Enhanced Wireless Services, (last visited Jan. 23, 2015). 8 Federal Cmmc ns Cmm n, Guide: 911 Wireless Services, (last visited Jan. 23, 2015). 9 Federal Cmmc ns Cmm n, Enhanced Wireless Services, (last visited Jan. 23, 2015). 10 Sectin (3)(h), F.S. 11 Id. 12 GPS.Gv, Space Segment, (last visited Jan. 23, 2015). 13 Schriever Air Frce Base, GPS, (last visited Jan. 23, 2015). 14 GPS.Gv, GPS Applicatins, (last visited Jan. 23, 2015). STORAGE NAME: h0197c.edts PAGE: 2
3 radi signals frm GPS satellites. 15 GPS technlgy can usually identify the lcatin f a cellular phne within a distance f ten meters; 16 hwever, mre recent cellular phne mdels are the nly mdels equipped with the prper hardware t utilize this technlgy. 17 Tracking Sftware Tracking sftware can be dwnladed nt phnes and ther electrnic devices and used t track the lcatin f the device fr mapping applicatins r ther purpses. 18 Sme types f tracking sftware can mnitr messages, s, web sites that are visited, and cntacts that are saved, in additin t tracking a device s lcatin. 19 Flrida Law Chapter 934, F.S., gverns the security f electrnic and telephnic cmmunicatins and the prcedural requirements fr searching and mnitring such cmmunicatins. The law cvers a number f different investigative and mnitring prcedures, including wiretapping, btaining service prvider recrds, and mbile tracking devices. Hwever, many f the chapter s prvisins nly apply t law enfrcement entities (e.g., s , F.S., authrizes a law enfrcement fficer t apply t a judge f cmpetent jurisdictin fr an rder authrizing r apprving the installatin and use f a mbile tracking device 20 ). Sectin , F.S., which applies t all persns, and makes it a third degree felny 21 fr a persn t intentinally use the cntents f an electrnic cmmunicatin, knwing r having reasn t knw that the infrmatin was btained thrugh the unlawful interceptin f the electrnic cmmunicatin (i.e., withut the cnsent f bth parties). The term electrnic cmmunicatin is defined as any transfer f signs, signals, writing, images, sunds, data, r intelligence f any nature transmitted in whle r in part by a wire, radi, electrmagnetic, phtelectrnic, r phtptical system that affects intrastate, interstate, r freign cmmerce. 22 Hwever, the definitin specifically excludes any cmmunicatin frm an electrnic r mechanical device which permits the tracking f the mvement f a persn r an bject. 23 Flrida law des nt currently prhibit a private individual frm installing a tracking device r tracking applicatin n anther persn s prperty withut the ther persn s cnsent. Effect f Prpsed Changes The bill creates the fllwing definitins: Business entity means any frm f crpratin, partnership, assciatin, cperative, jint venture, business trust, r sle prprietrship that cnducts business in this state. "Tracking applicatin" means any sftware prgram whse primary purpse is t track r identify the lcatin r mvement f an individual. "Tracking device" means any device whse primary purpse is t reveal its lcatin r mvement by the transmissin f electrnic signals. Persn means an individual and des nt include a business entity. 15 ECPA Refrm and the Revlutin in Lcatin Based Techs. & Servs. befre the Subcmm. n the Cnstitutin, Civil Rights & Civil Liberties, 111th Cng (statement f Matt Blaze, Assc. Prf., Univ. Pa.). 16 Id. 17 Id. at ECPA Refrm and the Revlutin in Lcatin Based Techs. & Servs. befre the Subcmm. n the Cnstitutin, Civil Rights & Civil Liberties, 111th Cng (statement f Matt Blaze, Assc. Prf., Univ. Pa.). 19 CBS DFW, Stalkers Using Cell Phnes t Track Victims, (last visited Jan. 26, 2015); Christine Pitawanich, Virtually Invisible Cell Phne Apps Used t Track and Spy n Victims, NBC News, Nv. 25, 2014, (last visited Jan. 26, 2015). 20 Sectin , F.S., defines tracking device as an electrnic r mechanical device which permits the tracking f the mvement f a persn r bject. 21 A third degree felny is punishable by up t five years imprisnment and a $5,000 fine. Sectins and , F.S. 22 Sectin (12), F.S. 23 Id. STORAGE NAME: h0197c.edts PAGE: 3
4 The bill creates a new sectin f statute making it a secnd degree misdemeanr 24 fr a persn t install a tracking device r tracking applicatin n anther persn s prperty withut the ther persn s cnsent. This prhibitin des nt apply t: a law enfrcement fficer as defined in s , F.S., r any lcal, state, federal, r military law enfrcement agency, that lawfully installs a tracking device r tracking applicatin n anther persn s prperty as part f a criminal investigatin; a parent r legal guardian f a minr child that installs a tracking device r tracking applicatin n the minr child s prperty if: the parents r legal guardians are lawfully married t each ther and are nt separated r therwise living apart, and either parent r legal guardian cnsents t the installatin f the tracking device r tracking applicatin; the parent r legal guardian is the sle surviving parent r legal guardian f the minr child; the parent r legal guardian has sle custdy f the minr child; r the parents r legal guardians are divrced, separated, r therwise living apart and bth cnsent t the installatin f the tracking device r tracking applicatin; a caregiver f an elderly persn r disabled adult, as thse terms are defined in s , F.S., if the elderly persn r disabled adult s treating physician certifies that the installatin f a tracking device r tracking applicatin nt the elderly persn r disabled adult s prperty is necessary t ensure the safety f the elderly persn r disabled adult; r a persn acting in gd faith n behalf f a business entity fr a legitimate business purpse. The bill specifies that a persn s cnsent t be tracked is presumed t be revked in the fllwing circumstances: the cnsenting persn and the persn t whm cnsent was given are lawfully married and ne persn files a petitin fr disslutin f marriage frm the ther; r the cnsenting persn r the persn t whm cnsent was given files an injunctin fr prtectin against the ther persn pursuant t ss , , , r , F.S. B. SECTION DIRECTORY: Sectin 1: Creates s , F.S., relating t installatin f tracking devices r tracking applicatins; exceptins; penalties. Sectin 2: Prvides an effective date f Octber 1, II. FISCAL ANALYSIS & ECONOMIC IMPACT STATEMENT A. FISCAL IMPACT ON STATE GOVERNMENT: 1. Revenues: This bill des nt appear t have an impact n state revenues. 2. Expenditures: This bill des nt appear t have an impact n state expenditures. B. FISCAL IMPACT ON LOCAL GOVERNMENTS: 1. Revenues: This bill des nt appear t have an impact n lcal gvernment revenues. 2. Expenditures: 24 A secnd degree misdemeanr is punishable by up t 60 days in cunty jail and a $500 fine. Sectins and , F.S. STORAGE NAME: h0197c.edts PAGE: 4
5 The bill creates a new secnd degree misdemeanr, which is punishable by up t 60 days in cunty jail and a $500 fine. This may have a negative jail bed impact. C. DIRECT ECONOMIC IMPACT ON PRIVATE SECTOR: Nne. D. FISCAL COMMENTS: Nne. A. CONSTITUTIONAL ISSUES: III. COMMENTS 1. Applicability f Municipality/Cunty Mandates Prvisin: This bill des nt appear t require cunties r municipalities t take an actin requiring the expenditure f funds, reduce the authrity that cunties r municipalities have t raise revenue in the aggregate, nr reduce the percentage f state tax shared with cunties r municipalities. 2. Other: Nne. B. RULE-MAKING AUTHORITY: This bill des nt appear t create a need fr rulemaking r rulemaking authrity. C. DRAFTING ISSUES OR OTHER COMMENTS: Nne. IV. AMENDMENTS/ COMMITTEE SUBSTITUTE CHANGES On February 3, 2015, the Criminal Justice Subcmmittee adpted a strike-all amendment and reprted the bill as favrable as a cmmittee substitute. The amendment: crrected terminlgy; narrwed the definitin f tracking applicatin and tracking device t encmpass applicatins and devices whse primary purpse was t track r identify its lcatin; added the definitins f persn and business entity; narrwed the prhibitin against tracking a persn s lcatin t nly encmpass the act f installing a tracking device r tracking applicatin; remved the requirement fr law enfrcement fficers t create a cntempraneus recrd f the use f the tracking device r applicatin; mdified the exceptin fr law enfrcement use t apply when a tracking device r tracking applicatin is lawfully installed; added a new exceptin fr installing a tracking device r applicatin by a caregiver f an elderly persn r disabled adult; and added a new exceptin fr a persn acting in gd faith n behalf f a business entity. This bill analysis is drafted t the cmmittee substitute as passed by the Criminal Justice Subcmmittee. STORAGE NAME: h0197c.edts PAGE: 5
HOUSE OF REPRESENTATIVES FINAL BILL ANALYSIS SUMMARY ANALYSIS
HOUSE OF REPRESENTATIVES FINAL BILL ANALYSIS BILL #: CS/CS/HB 197 FINAL HOUSE FLOOR ACTION: SPONSOR(S): COMPANION BILLS: Judiciary Cmmittee; Criminal Justice Subcmmittee; Metz and thers 113 Y s 0 N s CS/CS/SB
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