As someone who strongly opposes flock cameras...
This is a huge problem that people will try to sweep under the rug or hand wave away with wording like "It's the scale the matters".
Ideally, laws need to be written like programs are, where fundamental rules of the system are derived and programmatically put into action. So words like "scale" mean nothing. "I need the variable to go negative when the scale is large". Most programmers here will immediately snag on "scale" not being a hard value.
So what we actually need is a redefining of the fundamental rules, and well, that is very challenging to do such that it's still legal to walk around an record everything in public, but not legal to passively record everything in public all the time. How do we solidly and unambiguously differentiate a cops dashcam, from a police camera on a portable base station, from a flock camera on a corner to a private business with a security came to a firestation with a security camera.
Legally it's a very challenging problem to create a "programmatic differentiation" from the kind of camera use we want, and the kind we don't want.