Yes, a private citizen couldn't do this, because a private citizen can only spend so much time and money taking pictures, storing them and providing database ac

Yes, a private citizen couldn't do this, because a private citizen can only spend so much time and money taking pictures, storing them and providing database access. If a group of private citizens were to pool their efforts, it would be conspiracy to break the law, just as if a group of private citizens or a corporation were to pool their efforts to displenish any other public resource like airwaves, water supply, clean water, quiet, clean air, etc.