1. INTRODUCTION
The so-called ‘right to be forgotten’ is a potentially very powerful tool to enhance children’s rights in the digital environment, yet it is also a fiercely discussed topic in the context of the European Union’s data protection framework. Even though the right to erasure had already been included in Article 12 of the Data Protection Directive1 since 1995,2 the concept of being ‘forgotten’ on the Internet was catapulted to the forefront of public and academic debate in 2014 by the Google Spain judgment of the Court of Justice of the European Union (CJEU).3 It confirmed that the ‘right to be forgotten’ might be enforced, allowing a data subject “to restrict or terminate dissemination of personal data that he considers to be harmful or contrary to his interests”.4
The General Data Protection Regulation (GDPR), the EU’s newest data protection instrument that entered into force on 25 May 2018, contains in its Article 17, ‘the right to erasure’, with ‘the right to be forgotten’ added after it in the title, between parentheses. This formulation reflects earlier discussions on the extent to which these rights differ from each other or actually mean or aim to achieve the same.5 According to the European Data Protection Supervisor, Article 17 ‘strengthens’ the right to erasure “into a right to be forgotten to allow for a more effective enforcement of this right in the digital environment”.6 It is also our view that Article 17 GDPR does not create a new right, but rather describes the right to erasure in a much more detailed and explicit manner than before. In fact, it stipulates that the data subject (the person whose data is processed) has “the right to obtain from the controller the erasure of personal data concerning him or her without undue delay” in a variety of circumstances, such as when the data are no longer necessary for the purposes for which they have been collected, or when consent is withdrawn, or the data subject objects to the processing. This obligation is thus incumbent on the ‘controller’, a term that indicates any “natural or legal person, public authority, agency or other body which, alone or jointly with others, determines the purposes and means of the processing of personal data”.7 Since the GDPR applies to all entities —whether established in the EU or not— that offer goods or services to, or monitor the behaviour of EU citizens,8 the territorial scope is wide enough to extend to data controllers (e.g. online service providers) from potentially anywhere in the world.
Another innovation that was not included in the 1995 Data Protection Directive is the explicit manner in which the GDPR emphasises the relevance of the right to be forgotten for children. Children and adolescents might not be fully aware of the fact that their personal data is processed, nor of the fact that there is a variety of actors who process their data (such as government administrations, schools, business enterprises, and other individuals). Research has found, for instance, that young teenagers might not be commercially literate enough to realise that their data are used for commercial purposes.9 Additionally, children might not always be able to envisage the long-term consequences of disclosing personal information, especially in the digital environment.10 As they grow older, they might not want to be linked to information with which they do not longer identify. In such cases, the right to erasure enables a mitigation of the persistence, visibility, spreadability, and searchability of online information, which can hamper their exploration of, and experimentation with their identity.11
This article seeks to explore the right to erasure from a dynamic child rights perspective, arguing that for children in particular, the right to be forgotten might prove of significant importance to aid the realisation of their rights to development, freedom of expression and information, and private life. It also aims to identify a number of challenging questions that may arise in practice, such as considerations regarding the balance that should be struck with other rights and interests; the transparency required of controllers in informing children about the right to erasure; the desirability of default systems; the potential to ask for erasure where others (for instance, parents) have shared information about the child or given consent on behalf of the child; and, finally, the enforcement by Data Protection Authorities (DPA’s).
Although the debate about the right to erasure has also been of importance in jurisdictions outside of the European Union, such as in Colombia,12 Brazil13 and California,14 the focus of this article is limited to the right as conceptualised in the GDPR, and the human and children’s rights frameworks that underpin the rights that the right to erasure might help realise. These frameworks not only encompass those of the European Union (EU) and Council of Europe (CoE), and the human rights documents issued by those institutions, but also include the United Nations Convention on the Rights of the Child (UNCRC), ratified by 195 countries worldwide.
2. THE RIGHT TO ERASURE FOR CHILD DATA SUBJECTS
In contrast to its predecessor, the GDPR does devote specific attention to the protection of the personal data of children. Recital 38 acknowledges that this particular group of data subjects merits ‘specific protection’ regarding their personal data. Although the notion “child” is not defined in the GDPR, it has been argued both by scholars and Article 29 Working Party (WP29), that, in accordance with the UNCRC, ratified by all EU Member States, a child is a person under the age of 18 years.15
Recital 38 reflects children’s general right to privacy that directly stems from the UNCRC and is shaped by Article 6 on the child’s right to development, Article 8 on the right of the child to preserve his or her identity, and Article 16 on the right of the child not to be subjected to arbitrary or unlawful interference with his or her privacy, family, home, or correspondence.16 The child’s right to privacy and data protection, as well as to such protection and care as is necessary for his or her well-being, are also both indirectly and directly included in the CoE European Convention on Human Rights (ECHR)17 and the EU Charter on Fundamental Rights (CFREU).18
These rights are interpreted differently for children than they are for adults because children are not yet psychologically and physically mature,19 but are developing physically and mentally to become adults. The EU WP29 confirmed that the rights of the child, and the exercise of those rights —including that of data protection— should be expressed in a way that appreciates this special situation which children find themselves in.20
The right to be forgotten in particular is a right that recognises both the immaturity and the development of children.
Recital 65 GDPR literally states that this right is of particular relevance for children if consent to processing has been given as a child who “is not fully aware of the risks involved by the processing, and later wants to remove such personal data, especially on the Internet”. This has also been pitched as the ‘clean slate’ argument: ‘sins’ committed while growing up, should not haunt someone forever.21
It is undeniable that information that is posted, shared or disseminated on the Internet can have an enormous impact on an individual’s private life. Due to its easy accessibility and global reach, the Internet has facilitated an increase in privacy-related risks and infringements, such as harassment.22 The abuse of a teenager’s private information by others is all the more harmful in this digital society where the Internet is omnipresent and where results of an online search “may do more than anything else in the world to define a stranger in others’ estimations”.23 It must be reiterated in this regard that children are not always aware of the gravitas of the information that they share, or of the longevity with which it is stored. Furthermore, in addition to data that is consciously shared by a child, van der Hof also points to ‘data given off’ —which is data that just by being and acting online through computers and mobile devices, is collected, mostly unconsciously or unknowingly— and ‘inferred data’ —which is new data that is derived from other data, consisting of patterns and correlations.24 Consequently, the possibility to erase information with which they no longer identify when growing older may truly be in the child’s ‘best interests’, in line with Article 3 UNCRC and Article 24 (2) CFREU.25
For data controllers, it means that if children’s personal data have been collected and processed, “particular weight” should be given “to any request for erasure if the processing of the data is based upon consent given by a child, especially any processing of their personal data on the Internet”.26 This is also the case when the data subject who requests the erasure of certain data is no longer a child and when parents consented on his or her behalf as a child.27 The question arises of whether data controllers should ask data subjects for further information that could confirm their identity, in order to avoid circumstances where individuals could request the erasure of data about others. In this respect, the UK Information Commissioner’s Office has stated that if there are any doubts about the identity of the person making the request, data controllers can ask for more information, while ensuring that the only information requested is that which is necessary to confirm who the data subject is.28
Equally important is the fact that “where the controller has made the data public, […] [he] must take reasonable steps, including technical measures, to inform controllers which are processing the personal data that the data subject has requested the erasure by such controllers of any links to, or copy or replication of, those personal data”.29 In the digital environment, which is permeated with spreadability of information, this obligation is essential, yet difficult to implement. Especially with respect to the ‘data given off’ and ‘inferred data’, mentioned above, this might be very complex, or even unfeasible. Data Protection Authorities (DPAs) have clarified that this is an obligation of means or endeavour, instead of an obligation of result.30
In general, it should be as easy for a child to exercise their right to erasure as it originally was to provide the data.31 However, in practice, this will not always be so straightforward or even possible, for instance, because other rights are at stake.32
3. BALANCING THE RIGHT TO ERASURE WITH OTHER RIGHTS AND INTERESTS
Article 17 GDPR recognises that the right to erasure is not absolute. When processing is necessary for a number of legitimate reasons, most notably the exercise of the right to freedom of expression and information, it will not apply.33
A balance between privacy and personal data protection on one hand,34 and the freedom of expression on the other, is incredibly difficult to obtain. After all, these rights are fundamental rights guaranteed by Articles 8 and 11 CFREU and Articles 8 and 10 ECHR, and, as such, considered to be of equal value.35
In particular, freedom of expression and information are basic elements of a democratic society, as the CoE’s European Court of Human Rights (ECtHR) has stated in countless cases regarding Article 10 of the Convention. This led many to express grave worries concerning the impact of a far-reaching right to be forgotten on other fundamental rights.36 Following the Google Spain case, several news organisations also objected to Google removing links to their articles from its search results.37
The importance of the open nature of the Internet, and how it contributes to the freedom of expression and information, has been strongly defended,38 and echoed in a number of ECtHR judgments: the Internet enhances access to news and facilitates “the sharing and dissemination of information generally”.39
Prima facie it seems problematic to justify a drastic interference such as erasing information with the right to freedom of expression. However, there are many who believe that the right to be forgotten on the Internet is necessary because of the digital environment’s inherent ‘eternity effect’40 as well as the difficulty in removing online content or a social media account.41 However, in certain circumstances, the right to freedom of expression must prevail. For example, if a child grows up to be a public figure (like a politician),42 their online past could be relevant to the public which would be a reason to refuse the erasure of his or her personal data, a possibility recognised in recital 65 GDPR.43 The extent to which the information concerned is relevant to the public interest will be a guiding criterion in the balancing exercise between the right to a private life and personal data protection, and the freedom to receive information.
In this respect, we argue that human judgment is necessary to evaluate whether a request for erasure should indeed be complied by, whether it would risk negatively impacting the freedom of expression, or whether one of the other exemptions laid down in Article 17(3) applies. This requires investment in (new) staff to investigate claims for erasure, as the alternative —the deployment of automated systems or algorithms to decide upon such claims— might not be able to appreciate context44 nor be able to carry out the balancing exercise described above. At the same time, risks of over-compliance must be mitigated, as companies might seek to avoid legal disputes and thus (automatically) erase information in any case of doubt, resulting —in turn— in negative repercussions on freedom of expression.
4. TRANSPARENCY AND THE CHILD’S RIGHT TO ERASURE
Awareness and knowledge about the right to erasure are prerequisites to a meaningful exercise thereof. The principle of transparency, put forward in Article 5 (1) a) GDPR, is further elaborated in Articles 12, 13 and 14 GDPR. Data controllers must, according to Article 13 (2) b) and Article 14(2) c) GDPR, inform the data subject of the existence of the right to request, from the controller, access to and rectification or erasure of personal data. This information should “be specific to the processing scenario and include a summary of what the right involves and how the data subject can take steps to exercise it and any limitations on the right”.45 Additionally, the information must be communicated in a concise, transparent, intelligible and easily accessible manner, using clear and plain language, in particular when children are addressed. This means that the vocabulary, tone and style of the language used must be appropriate to and resonate with children.46 Examples given of ways in which this information can be conveyed are, for instance, comics or cartoons, pictograms and animations.47 Data controllers might actually test the child-friendliness of the information that they need to share with children through user panels48 or focus groups composed of children (of different ages).
As such, informing children in a way that makes them aware of their right to erasure and how to exercise this right will not reach or empower each and every child. There will always be children (and the same goes for adults) who will not absorb or assimilate such information, and, hence, not put their rights into practice.
5. THE DESIRABILITY OF ERASURE-BY-DESIGN SYSTEMS FOR CHILDREN’S DATA?
A possible remedy for the finding that transparency can only do so much, could be the adoption of “erasure-by-design” with respect to children. The principles of data protection by design and default, which have been advocated for quite some time, were explicitly incorporated in Article 25 GDPR. These principles require data controllers to “implement appropriate technical and organisational measures, such as pseudonymisation, which are designed to implement data-protection principles, such as data minimisation, in an effective manner and to integrate the necessary safeguards into the processing in order to meet the requirements of this Regulation and protect the rights of data subjects” and to “implement appropriate technical and organisational measures for ensuring that, by default, only personal data which are necessary for each specific purpose of the processing are processed”.49 It has been suggested before that these principles present opportunities that might mitigate some of the issues with individual -children’s or parental- control over personal data, by incorporating individual control rights into the data systems operation, hence potentially making them more effective.50
With respect to children, proposals regarding erasure-by-design or default have been put forward in the past, for instance by the Canadian Public Interest Advocacy Centre (PIAC) in the context of the 2010 Government Consultation on A Digital Economy Strategy for Canada. As PIAC suggested:
Once children reach the age of majority, organisations that have collected and used personal information should no longer be permitted to retain the information gathered during the child’s “legal minority’ and should be required to remove the information immediately unless the newly adult person gives his or her explicit consent to the continued collection, use and possible future disclosure of their personal information gathered during their minority.51
Whereas such a mechanism could indeed put the ‘clean slate’ argument into practice, it would require taking the views of the data subject into consideration and necessitate his or her consent. Not all data subjects will want the personal data collected and processed during their youth to be erased.52 However, it could be imagined that this possibility is offered by data controllers when a data subject turns 18, at least in cases where controllers are actually aware of the age of the data subject.53
6. THE RIGHT TO ERASURE AND ‘SHARENTING’
During childhood and youth, personal data of children is not only collected or processed from the child. Information, such as pictures, videoclips or messages concerning the child, are often shared by parents (or other family members). This practice, often denoted as ‘sharenting’, a contraction between ‘sharing’ and ‘parenting’, is widespread.54 It has been argued to be “a practice of self-representation by and of parents and their parenting rather than, simply, parents’ supposedly unthinking exposure of their children”.55 However, others claim that sharenting may cause children substantial embarrassment and anxiety, and that harsh comments by third parties upon sharented information can negatively impact a child’s self-respect.56 In certain circumstances, the parents’ right to freedom of expression and to family-life can, hence, enter into conflict with the child’s right to privacy and data protection.57 As such, parents should “take the child’s best interests into consideration and consult the child about what is shared about them, in accordance with their age and maturity”.58 Yet, not all parents always actually abide by this principle. Furthermore, especially during adolescence, when the child is fully exploring his or her identity, parents and children may not see eye to eye.
In circumstances in which children are affected by sharenting and where dialogue with their parent(s) runs awry, the right to erasure could, in our view, in relation to data stemming from sharenting, be exercised by data subjects, either as a child that can be considered competent to do so (see below) or as an adult in relation to data that was processed when the data subject was still a child. Two caveats are worth noting in this regard. First, in circumstances where sharenting can be considered to be a “purely personal or household activity”, the GDPR and, hence, the right to erasure will not apply.59 Whether or not this is the case, will depend on the concrete circumstances of each case. Certain activities on social networking sites, for instance, could fall within this household exemption,60 others arguably not. Second, children that are not (yet) legally competent to exercise their right to erasure, and have to rely on their parent or guardian to do so, will evidently find themselves in a more difficult situation when it comes to the exercise of their right to erasure vis-à-vis their parent(s). In this regard, perhaps Article 80 (1) GDPR could provide for a remedy, as this allows a data subject to mandate a not-for-profit body, organisation or association with statutory objectives which are in the public interest, and active in the field of the protection of data subjects’ rights and freedoms to lodge the complaint on his or her behalf. It could be imagined that children could rely on child advocacy services or other organisations representing the interests of children to lodge a complaint on their behalf.61
7. EXERCISING THE RIGHT TO ERASURE AND THE ROLE OF DATA PROTECTION AUTHORITIES
As a general principle, data protection rights can be exercised by the person whose rights are at stake: the data subject.62 The exercise of rights under the GDPR should be easy, free and quick. Recital 59 clarifies that
Modalities should be provided for facilitating the exercise of the data subject’s rights under this Regulation, including mechanisms to request and, if applicable, obtain, free of charge, in particular, access to and rectification or erasure of personal data and the exercise of the right to object. The controller should also provide means for requests to be made electronically, especially where personal data are processed by electronic means. The controller should be obliged to respond to requests from the data subject without undue delay and at the latest within one month and to give reasons where the controller does not intend to comply with any such requests.
Of course, when children are involved, national legislation that includes rules on legal competence needs to be taken into account. Such rules might differ from country to country,63 and may depend on a specific age, or on maturity or a child’s level of understanding. With regard to the right to erasure, those younger than 18 that are considered to be legally competent will (and should) be able to exercise this right.64 Where children are not competent, the holder of parental responsibility can (usually) exercise the right on the child’s behalf,65 except, for instance, in cases where this is clearly not in the best interests of the child.66 Importantly, where the holder of parental responsibility does act on behalf of the child, the child’s right to be heard, as laid down in Article 12 UNCRC and Article 24 CFREU should be taken into account, in accordance with the child’s age and maturity.67
In practical terms, when the child or his or her representative wants to exercise the right to erasure, first, the data controller needs to be contacted with the request.68 Subsequently, the controller must provide information on the action taken with respect to the request without undue delay and, in any event, within one month of receipt of the request.69 If the controller decides not to take action, the data subject must be informed (again, without delay and at most within one month) of the reasons for not taking action and on the possibility of lodging a complaint with a supervisory authority and seeking a judicial remedy.70 This means that in case a child or his or her representative is not satisfied with the decision of the data controller not to erase certain data, it is possible to file a complaint with the competent Data Protection Authority (DPA),71 which will investigate and assess the case.
In addition to complaining to a DPA, data subjects also have the right to an effective judicial remedy where they consider that their rights under the GDPR have been infringed, and can thus enforce their right to erasure before a (national) court. Ultimately, in case this proves unsatisfactory, disputes might, in the future —if the relevant procedural requirements are respected— end up at the CJEU, or —given the possible conflicts between the right to respect private life and the right to freedom of expression and information— within the context of Article 8 or 10 ECHR applications at the ECtHR. If this occurs, it will be interesting to see whether converging or diverging balancing exercises will be carried out by the two courts.
8. CONCLUSION
The digital environment is “reshaping children’s lives in many ways, resulting in new opportunities for and risks to their well-being and rights”.72 It is undeniable that throughout childhood, and sometimes even before, ever-increasing amounts of personal data relating to children are collected and processed. One of the starting points of the GDPR is that natural persons should have control of their own personal data.73 The right to erasure is one mechanism that allows data subjects to exercise such control. It can only be welcomed that the GDPR emphasises that this right is particularly relevant for children, as it will allow them -at least to the extent that they wish-to let go of the past. In certain instances, this will be necessary in order for them to be able to fully embrace the future.
As such, we argue that the exercise of this right must be approached from a children’s rights perspective. This entails that, except in narrowly interpreted circumstances where other interests prevail, the balance should tip towards erasure when children exercise their right. In any case, the primary consideration in assessing requests must be the child’s best interests and their rights to development and respect for private life. All actors involved —data controllers, parents and DPAs— must commit to this.
Of course, the potential of the right to erasure with respect to the child data subject can only be realised if subjects are aware of the existence of this right and if the threshold for the exercise thereof is sufficiently low. Although this may be in part accommodated by enhancing children’s media or data literacy levels, in the end, data controllers should facilitate both child-friendly information and a child-friendly procedure, and, if not, DPAs will be able to hold them accountable.74 At this point in time, it is very hard to predict how the right to erasure will be put into practice with respect to children’s data. The coming months and years will bring more clarity in terms of the extent to which data subjects embrace the right, best practices by data controllers, guidance and decisions by DPAs, and, perhaps, judgments of courts in disputes.