Subject: Appeal against PCN [PCN NUMBER] – Vehicle [VRM]
This is an appeal from the registered keeper of the vehicle. It is made strictly in that capacity. The operator is put on notice that there is no obligation to identify the driver and no such information will be provided.
The starting point is that any alleged parking contract is formed, if at all, between the operator and a human being who is said to have read and accepted the terms on a sign. Contracts are not formed with lumps of metal or registration numbers.
In this case there were two separate visits and a different driver for each visit. At most there would be one contract with the first driver on visit one and a completely separate contract with the second driver on visit two. A “no return within X hours” term that purports to treat the vehicle as the contracting party is legally incoherent. It attempts to bind a later driver to whatever the earlier driver supposedly did, which is nonsense in contract law.
ANPR simply records a plate passing a camera. It does not and cannot identify who was driving, and it certainly does not prove that the same person drove on both visits. Without a proven contracting party and a proven breach by that individual, there is no enforceable contract and nothing owed to the operator.
On top of that, the Notice to Keeper is fundamentally non-compliant with the Protection of Freedoms Act 2012 Schedule 4 and cannot create keeper liability. Paragraph 9(2)(a) requires the notice to specify the vehicle, the relevant land and the period of parking to which the notice relates. That necessarily includes a clear date and span of time of the alleged parking event, set out in the wording of the notice itself.
This NtK does not state any date of contravention or date of event anywhere in its narrative text. It rambles about an “alleged contravention” and an “outstanding parking charge” but never actually says on what date this is alleged to have occurred. That alone is a failure of 9(2)(a).
The operator appears to be trying to plug that hole with a handful of tiny, low-quality ANPR stills dumped at the bottom of the page. Even on a generous reading, any purported date and time in those images is barely legible; the timestamp information is effectively unreadable. More importantly, PoFA does not require photographs at all. A fully compliant NtK could be plain text. That means all the mandatory information in paragraph 9 must be present and clear in the text of the notice. Hiding critical details in fuzzy pictures does not satisfy the statute. The notice as served simply does not tell the keeper, in plain words, when the alleged event took place.
The same paragraph 9(2)(a) also demands that the notice specify the “period of parking”. This NtK never does that either. The operator scatters some “entry” and “exit” times around, but does not translate them into any clear period of parking in the body of the notice.
There is no statement such as “the period of parking to which this notice relates is [date] from [time] to [time]”. A few half-readable timestamps, some of which cannot even be deciphered, is not a “period of parking” within the meaning of PoFA. That is a second and separate breach of 9(2)(a).
Paragraph 9(3) then requires that the notice must relate only to a single period of parking specified under 9(2)(a). Here the entire allegation is built on a supposed “no return” rule, which by definition relies on at least two visits.
The operator’s own images show an initial in/out and a later in/out. That is not one continuous stay, it is two distinct parking events with a gap between them. Even if the operator had properly specified a period of parking in the text (which they have not), this still could not satisfy 9(3), because the notice is not tied to a single period of parking at all. PoFA Schedule 4 simply does not support this kind of “no return” construct. The statutory conditions for keeper liability are not met.
Because the NtK fails 9(2)(a) and 9(3), the operator has no lawful route to transfer liability from an unknown driver to the keeper. The burden remains entirely on the operator to identify the driver and to prove that that person actually agreed to, and then breached, a specific term. There is no presumption and no entitlement to infer that the keeper must have been the driver merely because their name appears on the V5C.
Persuasive case law confirms that keeper status alone is incapable of discharging that burden. In a non-PoFA situation such as this there is no legitimate route to keeper liability and no scope for any court to guess or assume who was driving.
Against that background, the operator’s attempt to present this NtK as if Schedule 4 somehow applies is not just wrong, it is misleading. The Private Parking Single Code of Practice (including clause 8.1.1(d)) makes it clear that operators must not misstate the effect of PoFA or suggest that the keeper is liable where the statutory conditions are not satisfied. That is exactly what is happening here. The operator has accessed and processed keeper data obtained from the DVLA on the back of a legally defective notice, then tried to dress it up as if keeper liability were engaged.
This behaviour strays into the territory of unfair commercial practices under the new Digital Markets, Competition and Consumers Act 2024. The operator has failed to provide clear, legible, material information about the date and period of the alleged parking, misrepresented the legal position on keeper liability and sought to pressure payment on the back of unreadable “evidence” that cannot cure statutory defects.
Those are classic examples of misleading actions and misleading omissions. If this charge is not cancelled, a formal set of complaints will be raised with the DVLA, the ICO and the Competition and Markets Authority, specifically referencing misuse of keeper data, misrepresentation of PoFA, non-compliance with the Private Parking Single Code of Practice and potential breaches of the DMCC Act.
In short: there is no valid contract, no compliant NtK, no keeper liability and no evidence capable of identifying or binding any driver. The only correct outcome is cancellation of this speculative invoice.
Appeal against Parking Charge Notice [PCN NUMBER] – Vehicle [VRM]
1. Status of the appellant and absence of any admission as to driver
This appeal is submitted by the registered keeper of the above vehicle. The appellant relies on their statutory status as keeper only. No admission is made as to the identity of the driver on any occasion, and no driver will be identified. The operator is put to strict proof as to the identity of any alleged contracting party.
2. Fundamental contractual incoherence: “no return” construct, multiple visits and different drivers
The operator’s own case is based upon automatic number plate recognition (ANPR) showing two discrete visits separated by an interval, and upon signage which is said to impose a “maximum stay of 2 hours” with a “no return period of 2 hours” and an additional provision that “additional parking charges apply for each 24-hour period, or part thereof, that the vehicle remains in breach or if it returns at any time”.
As a matter of elementary contract law, any parking contract is formed, if at all, between the operator (or its principal) and a natural person, namely the driver who is alleged to have read and accepted the terms upon entry and by remaining parked. Contracts are not formed with a chattel such as a vehicle or with a registration mark. It follows that for each visit there can only be a contract with the driver on that visit.
On the facts of this case, there were two separate visits and different drivers on each occasion. It is therefore impossible, as a matter of privity and personal obligation, for the driver on the later visit to be bound by any supposed “no return” restriction that depends upon the conduct of a different individual on an earlier visit. A term expressed as binding “the vehicle” is legally incoherent; it purports to ascribe continuing contractual obligations to a physical object that cannot read, consent or perform. The operator’s attempt to found liability upon a “no return” restriction that is triggered by the actions of a different driver is, with respect, misconceived and unenforceable.
Even if the signage were otherwise adequate (which is not conceded), the operator has failed, on any rational analysis, to demonstrate that any particular person entered into, and then personally breached, a contractual term. The operator’s own evidence therefore fails at the most basic level of contract formation and breach.
3. Non-compliance with the Protection of Freedoms Act 2012, Schedule 4
If the operator wishes to pursue the registered keeper rather than a proven driver, it must comply strictly with the conditions of Schedule 4 to the Protection of Freedoms Act 2012 (“PoFA”). It is trite law that Schedule 4 is a self-contained code, conferring a limited right to recover unpaid parking charges from keepers only when its conditions are met. Non-compliance is fatal to any claim against the keeper.
The Notice to Keeper (“NtK”) in this case is defective and does not comply with PoFA, in particular paragraphs 9(2)(a) and 9(3).
3.1 Failure to specify the date and period of parking – PoFA paragraph 9(2)(a)
Paragraph 9(2)(a) requires the NtK to “specify the vehicle, the relevant land on which it was parked and the period of parking to which the notice relates”.
The NtK in this case fails to specify, in its narrative text, the date of the alleged contravention. The wording refers in general terms to an alleged contravention and an outstanding charge, but nowhere in the body of the notice is the date on which that contravention is said to have occurred actually stated.
Nor does the NtK specify any “period of parking” in the sense required by PoFA. The operator merely scatters “entry” and “exit” times on the document, some of which appear only in very low-quality ANPR stills. These times are, in material part, illegible due to poor reproduction and in any event are never translated into a stated period in the wording of the notice. There is no clear statement such as “the period of parking to which this notice relates is [date] from [time] to [time]”. A list of timestamps, particularly when reproduced in such poor quality that they cannot sensibly be read, does not satisfy the statutory requirement to “specify...the period of parking”.
It is important to note that PoFA does not require an operator to provide photographs at all. A fully compliant NtK could be issued entirely in text. It necessarily follows that all mandatory information required by paragraph 9(2) must be present and clear in the wording of the notice itself. Optional, low-resolution images cannot be relied upon to “cure” omissions in the statutory text. The NtK’s failure to state, in words, the date and period of the alleged parking event is a plain breach of paragraph 9(2)(a).
3.2 Contravention of PoFA paragraph 9(3): notice must relate to a single period of parking
Paragraph 9(3) provides that the NtK “must relate only to a single period of parking specified under sub-paragraph (2)(a)”.
The operator’s own case, as set out in its rejection letter, is that the charge arises from a “no return” restriction, with two visits recorded some hours apart. By definition, a “no return within 2 hours” allegation depends upon at least two separate periods of parking. The operator’s ANPR evidence shows an initial arrival and departure and a later arrival and departure. That is not “a single period of parking”; it is two distinct parking events separated by an interval.
It follows that, even if the NtK had specified a period of parking (which it has not), it still could not comply with paragraph 9(3), because the notice is predicated upon multiple periods, not a single one. PoFA Schedule 4 is drafted to apply to a single parking event; it does not extend keeper liability to “no return” scenarios based on composite ANPR records.
Given these breaches of paragraphs 9(2)(a) and 9(3), the operator cannot, as a matter of law, recover this charge from the registered keeper.
4. Keeper liability and the burden of proof
In circumstances where PoFA is not complied with, there is no statutory transfer of liability from driver to keeper. The operator must then establish, on orthodox principles, the identity of the driver and the alleged breach by that person. There is no presumption in law that the registered keeper was the driver, nor any entitlement to infer this merely from the DVLA record. Persuasive County Court authority (for example, Vehicle Control Services Ltd v Edward [2023]) confirms that keeper status does not justify an inference that the keeper was the driver. The burden remains upon the operator throughout to prove, on evidence, that a particular individual was driving and that that individual is contractually liable.
In this case, the operator relies solely upon ANPR captures of a registration mark and has adduced no evidence as to the identity of any driver, let alone continuity of driver between visits. In fact, as already stated, there were different drivers on each visit. The operator has therefore failed to discharge the burden of proving any personal liability on the part of any identified contracting party. In the absence of PoFA compliance, there is no lawful route to keeper liability, and no proper evidential basis upon which liability could be imposed.
5. Breach of the Private Parking Single Code of Practice and unfair commercial practice
The Private Parking Single Code of Practice (“PPSCoP”), which binds accredited operators, contains clear obligations not to misrepresent the legal position regarding keeper liability and PoFA. In particular, clause 8.1.1(d) (as in force from 17 February 2025) prohibits operators from suggesting that a keeper is liable under PoFA where the statutory conditions are not in fact met.
By issuing a defective NtK that omits key PoFA information, by presenting it as if keeper liability were engaged, and by then seeking to uphold the charge against the keeper despite these defects, the operator is in clear breach of the PPSCoP. The operator has accessed and processed keeper data obtained from the DVLA on a legally defective basis and has mischaracterised its entitlement to recover the charge from the keeper. That conduct is also highly questionable when viewed against the framework of the Digital Markets, Competition and Consumers Act 2024, which addresses misleading actions and omissions and unfair commercial practices.
6. Conclusion
In summary, the operator’s case fails on multiple independent grounds:
(a) There is no coherent contractual route to liability in a two-visit, two-driver scenario relying on a “no return” restriction aimed at “the vehicle”, which is legally meaningless.
(b) The Notice to Keeper is non-compliant with PoFA 2012 Schedule 4. It fails to specify, in its wording, the date and period of parking as required by paragraph 9(2)(a) and, in any event, purports to relate to multiple visits, contrary to paragraph 9(3)’s requirement of a single period of parking.
(c) In the absence of PoFA compliance, there is no statutory keeper liability. The operator has failed to prove the identity of any driver and cannot rely upon any legal presumption to convert the registered keeper into the driver.
(d) The operator’s conduct contravenes the PPSCoP and raises concerns as to unfair commercial practices.
For all of the above reasons, the appellant respectfully submits that this Parking Charge Notice is neither lawful nor enforceable against the registered keeper and invites the Independent Appeals Service to allow the appeal and direct that the charge be cancelled.
I would therefore wait until a Letter Before Action and then name Driver B as the driver. Driver A is taken out of the equation.