This document defines a signal, transmitted over HTTP and through the DOM, that conveys a person's request to websites and services to not sell or share their personal information with third parties. This standard is intended to work with existing and upcoming legal frameworks that render such requests enforceable.
Building websites today often requires relying on services provided by businesses other than the one which a person choses to interact with. This result is a natural consequence of the increasing complexity of Web technology and of the division of labor between different services. While this architecture can be used in the service of better Web experiences, it can also be abused to violate privacy ([[?privacy-principles]]). While data can be shared with service providers for limited operational purposes, it can also be shared with third parties or used for behavioral targeting in ways that many users find objectionable.
Several legal frameworks exist — and more are on the way — within which people have the right to request that their privacy be protected, including requests that their data not be sold or shared beyond the business with which they intend to interact. Requiring that people manually express their rights for each and every site they visit is, however, impractical.
Given the ease and frequency by which personal information is collected and sold when a consumer visits a website, consumers should have a similarly easy ability to request to opt-out globally. This regulation offers consumers a global choice to opt-out of the sale of personal information, as opposed to going website by website to make individual requests with each business each time they use a new browser or a new device. [[?CCPA-AG-FINAL-STATEMENT]]
This specification addresses the issue by providing a way to signal, through an HTTP header or the DOM, a person's assertion of their applicable rights to prevent the sale of their data, the sharing of their data with third parties, and the use of their data for cross-site targeted advertising. This signal is equivalent, for example, to the "global privacy control" in the CCPA [[?CCPA-REGULATIONS]].
A do-not-sell-or-share interaction is an interaction with a website in which the person is requesting that their data not be sold to or shared with any party other than the one the person intends to interact with, or to have their data used for cross-site ad targeting, except as permitted by law.
A do-not-sell-or-share preference is when a person requests that their data "not be sold or shared" for instance by activating a Global Privacy Control setting with their user agent or by using tools that default to such a setting (possibly because this setting matches the most common expectations of that tool's users). When set, this [=preference=] indicates that the person expects to browse the Web with [=do-not-sell-or-share interactions=].
A Global Privacy Control [=preference=] should be conveyed for all HTTP requests (in the form of the HTTP header) and all websites (in the form of the Web API property).
If set, this [=preference=] is expressed as a single value of 1 or equivalently
true according to context.
In the absence of regulatory, legal, or other requirements, websites MAY interpret an expressed Global Privacy Control [=preference=] as they find most appropriate for the given person, particularly as considered in light of the person's privacy expectations, context, and cultural circumstances. Likewise, websites might make use of other [=preference=] information outside the scope of this protocol, such as site-specific person [=preferences=] or third-party registration services, to inform or adjust their behavior when no explicit [=preference=] is expressed via this protocol.
User agents are expected to convey person [=preferences=] as accurately as they can. User agents SHOULD strive to represent what the user agent best believes to be the person's [=preference=] for the Global Privacy Control value.
The [=preference=] MUST be cached on each top-level navigation to ensure consistency in communication of the person's request that their data "not be sold or shared." This means that if the [=preference=] changes during or after a top-level navigation, it will not be reflected until the next navigation.
A [=top-level browsing context=] has a gpcAtNavigation boolean.
It is initially false.
The value of [=gpcAtNavigation=] MUST reflect the [=preference=]
of the person when the [=top-level browsing context=]'s [=navigable/active document=] began loading.
It will be true if the person's [=preference=] was enabled, and false if
the person's [=preference=] was disabled or had not been set.
If [=preference=] is changed to be inconsistent with some gpcAtNavigation cached in a
[=top-level browsing context=], the user agent SHOULD inform the user of any inconsistent tabs and provide
the option to reload them, refreshing the cached gpcAtNavigation to reflect the current [=preference=].
Sec-GPC Header Field for HTTP Requests
The Sec-GPC header field is a mechanism for expressing the person's
[=preference=] for a [=do-not-sell-or-share interaction=] in an HTTP request (for any
request method).
The syntax ([[ABNF]]) of the field is:
Sec-GPC-field-name = "Sec-GPC"
Sec-GPC-field-value = "1"
A user agent MUST NOT generate a [=Sec-GPC=] header field if [=top-level browsing context=]'s
gpcAtNavigation is false.
A user agent MUST generate a [=Sec-GPC=] header field with a field-value that
is exactly the numeric character "1" if [=top-level browsing context=]'s
gpcAtNavigation is true.
A user agent MUST NOT generate more than one [=Sec-GPC=] in a given HTTP
request and MUST NOT use a [=Sec-GPC=] field in an HTTP trailer.
A server processing an HTTP request that contains a [=Sec-GPC=] header MUST
ignore it and process the request as if that header had not been specified unless the
field value is exactly the character "1". If there are multiple [=Sec-GPC=]
headers and at least one has a field value of exactly "1" then the server MUST treat the
request as if there were only one [=Sec-GPC=] header with a field value of
"1"; and as if there were none otherwise.
HTTP intermediaries MUST NOT remove a [=Sec-GPC=] header set to "1", but they
MAY remove [=Sec-GPC=] headers that contain other values. Additionally, an
HTTP intermediary that has reasons to believe the the person originating a given HTTP
request has a [=do-not-sell-or-share preference=], MAY insert a [=Sec-GPC=]
header set to "1".
The [=Sec-GPC=] is deliberately defined without an extension mechanism.
Experience with previous similar headers shows that people tend to rely on string
equality instead of parsing the value when testing for their presence, especially when
extensions do not yet exist. Such checks would of course fail in the presence of
extension content, which would in turn render the mechanism moot. Should extensions
prove necessary to this standard, they will need to be implemented through other
headers, which may in time supersede this one.
The {{GlobalPrivacyControl/globalPrivacyControl}} property enables a client-side
script to determine what [=Sec-GPC=] header field value was sent when
loading the [=top-level browsing context=]'s [=navigable/active document=].
interface mixin GlobalPrivacyControl {
readonly attribute boolean globalPrivacyControl;
};
Navigator includes GlobalPrivacyControl;
WorkerNavigator includes GlobalPrivacyControl;
The value is false if no Sec-GPC header field would be sent;
otherwise, the value is true.
The value of {{GlobalPrivacyControl/globalPrivacyControl}} MUST be the
[=top-level browsing context=]'s gpcAtNavigation.
The {{GlobalPrivacyControl/globalPrivacyControl}} property is available on the
navigator object in both regular and worker contexts, and so can be checked
reading from navigator.globalPrivacyControl.
A site MAY produce a resource at a .well-known URL in order for a site to represent the fact that it abides by GPC requests, at least where required to do so. The purpose of a GPC support resource is for a site to convey its awareness of and support for the Global Privacy Control. The support resource is not intended to convey whether the site abides by GPC requests from the user agent accessing the resource. By default, an origin's support is unknown.
A GPC support resource has the well-known identifier /.well-known/gpc.json
relative to the origin server's URL [[RFC8615]].
An origin server that receives a valid GET request targeting its GPC support resource responds either with a successful response containing a machine-readable representation of the site-wide tracking status, as defined below, or a sequence of redirects that leads to such a representation (which MAY be provided by a server at another origin).
The origin server MUST return the GPC support resource as a valid representation using the
application/json media type [[RFC8259]], otherwise the origin's support is
unknown.
The GPC support representation MUST be an JSON object, otherwise the origin's support is unknown. Members of this JSON object not in the list below have no meaning in this specification and MUST be ignored. Members include:
gpc member. The value of the gpc member MUST be either
true, to indicate that the server intends to abide by GPC requests at least
to the extent it is legally obligated to do so, or false, to indicate that
it does not. For any other value the origin's support is unknown.
lastUpdate member. The value of the lastUpdate
member MUST be an RFC3339 full-date (YYYY-MM-DD) or date-time
(YYYY-MM-DDTHH:mm:ss.sssZ) [[RFC3339]]. This indicates the time at
which the statement of support was made, such that later changes to the meaning of the
GPC standard should not affect the interpretation of the resource for legal purposes.
If the member is not in a valid RFC3339 format, the last update date and time is
unknown.
Receiving a GPC signal may have legal effects, depending on factors such as the location of the individual sending the signal, the scope of the applicable law, as well as any separate agreement between the recipient of the signal and the individual. For additional details on legal effects, consult the explainer.
For example, the use of the GPC signal by an individual will be intended to communicate the individual's intention to invoke the following rights, as applicable:
Under the CCPA, the GPC signal will be intended to communicate a Do Not Sell request from a global privacy control, as per [[?CCPA-REGULATIONS]] §999.315 for that browser or device, or, if known, the consumer.
Where the GPC signal conflicts with the existing privacy settings a consumer has with the business, the business shall respect the GPC signal but may notify the consumer of the conflict and give the consumer an opportunity to confirm the business-specific privacy setting or participation in the financial incentive program [[?CCPA-REGULATIONS]] §999.315(c)(2).
The CPA gives consumers the legal right to opt out of both the sale of their information as well as the use of their data for cross-site targeted advertising, including through the use of “universal opt-out mechanisms that clearly communicate a consumer’s affirmative, freely given, and unambiguous choice to opt out.” Under the CPA, the GPC signal will be intended to communicate a request to opt out of both the sale of their personal information and the use of their personal information for targeted advertising.
Similarly, the CDPA gives consumers separate opt-out rights for data sales and targeted advertising, including through an “authorized agent by way of, among other things, a technology, including, but not limited to, an Internet link or a browser setting, browser extension or global device setting.” Under the CDPA, the GPC signal will be intended to communicate a request to opt out of both the sale of their personal information and the use of their personal information for targeted advertising.
Under NRS 603A, a GPC signal will be intended to communicate a Do Not Sell My Personal Information request [[?SB220]].
The GDPR requires that "Natural persons should have control of their own personal data" ([[?GDPR]], Recital 7). The GPC signal is intended to convey a general request that data controllers limit the sale or sharing of the person's personal data to other data controllers ([[?GDPR]] Articles 7 & 21). This request is expressed with every interaction that the user agent has with the server.
Note that this request is not meant to withdraw a person's consent to local storage as per the ePrivacy Directive ("cookie consent") ([[?EPRIVACY-DIRECTIVE]]) nor is it intended to object to direct marketing under legitimate interest ([[?GDPR]]).
GPC could potentially be used to indicate rights in other jurisdictions as well.
Other US state privacy laws, such as those in Virginia and Utah, give consumers new opt-out rights around data sales and targeted advertising but are silent on the legal effect of global opt-out signals. Regulators enforcing those statutes may determine that a user activating a signal such as GPC may be sufficient to legally exercise opt-out rights in those jurisdictions.
However, GPC is not necessarily intended to invoke every new privacy right in every jurisdiction. For example, GPC is not intended to globally invoke data deletion rights on every website visited by the user. GPC is also not intended to limit a first party’s use of personal information within the first-party context (such as a publisher targeting ads to a user on its website based on that user’s previous activity on that same site). For that reason, GPC should not be interpreted as exercising the CCPA’s right to limit the use of sensitive information in a first-party context.
Given the complexities of existing consent frameworks, publishers who accept the GPC signal should disclose how they treat the GPC signal in that jurisdiction and how they deal with conflicts between the signal and other specific privacy choices that the person has already made directly with the publisher, including instances where third party sharing may be permitted such as sharing to service providers/processors, sharing at law or at the direction of the individual.
User agents SHOULD strive to represent what the user agent best believes to be the person's preference for the Global Privacy Control value. While studies have shown that people do not want their data sold or shared, some jurisdictions have enacted "opt-out" legal frameworks where consumers have to take an affirmative action to express a [=preference=] to limit data sharing of the use of their data for targeted advertising.
Different jurisdictions have different prerequisites before a platform can enable a universal opt-out. For example, the most recent regulations promulgated under the California Consumer Privacy Act state:
The platform, technology, or mechanism that sends the opt-out preference signal shall make clear to the consumer, whether in its configuration or in disclosures to the public, that the use of the signal is meant to have the effect of opting the consumer out of the sale and sharing of their personal information. The configuration or disclosure does not need to be tailored only to California or to refer to California ([[?CPPA-REGULATIONS]], §7025(b)(2)).
Colorado and other jurisdictions are more prescriptive about requirements for a valid universal opt-out signal. For example, Colorado’s regulations explicitly provide “a Universal Opt-Out Mechanism may not be the default setting for a tool that comes pre-installed with a device, such as a browser or operating system” ([[?COLORADO-REGULATIONS]], Rule 5.04(a)).
Currently California and Colorado are the only jurisdictions in the United States that empower regulators to issue detailed regulations on topics such as universal opt-outs. Other statutes state relatively high level legal requirements that may be augmented by informal guidance (such as an FAQ) or through enforcement.
The legal landscape around global opt-outs is also changing. In 2023, several new states passed laws that include requirements to honor global opt-outs, though some of those states’ provisions differ considerably. Additionally states may revise their legal requirements as California has already amended the original CCPA that was passed in 2018.
In addition to the United States, other jurisdictions may recognize universal privacy signals and may impose their own requirements before such signals are deemed legally bindinging.
For more information on the latest legal requirements, please review the implementation guide which will provide more up-to-date information about the latest legal guidance around global opt-outs.
User agents are expected, where required, to present all the appropriate notices to people to ensure that the rights they wish to avail themselves of are effectively binding.
Exposing a user's preference (in the HTTP header field or
navigatorobject) potentially divides users into two groups in a way that might increase the information available for fingerprinting. This extra information is available unless the signal perfectly correlates with other signals. Depending on the browser and implementation, the GPC signal may impose a privacy cost, though one intended to be justified by the privacy benefit of sending the signal.
It is worth considering that a GPC signal will be attached to every HTTP request made to a given site. Rendering a page on the Web often requires making dozens such requests. As such it can prove impractical for GPC signals to trigger full-blown opt-out procedures with costly audit trails for every single GPC interaction as that will cause a large amount of processing, including for resources served from a content delivery network (CDN) that must be executed as efficiently as possible.
Regulations that intend to support GPC are encouraged to consider such implementation difficulties. One way of addressing them is to differentiate between user interface affordances given to people for the purpose of requesting a [=do-not-sell-or-share interaction=] [=preference=] to persist on the site, and the provision of a [=do-not-sell-or-share interaction=] signal the state of which is maintained with the user agent. In the latter case, the interaction can be processed as if the person had previously requested such a [=do-not-sell-or-share interaction=] [=preference=] and were interacting with that [=preference=] already active.