以下為立法會會議上的提問和運輸及房屋局局長張炳良教授的書面答覆：
問題：
隨着相關的科技發展越趨成熟，無人駕駛飛機系統（無人機）的價格持續下降，用途亦日益廣泛。放飛無人機已成為不少市民的閒暇活動。與此同時，無人機的普及帶來不少新問題，包括公眾安全問題。例如，今年七月美國有青年進行實驗，成功把加裝於無人機上的自動手槍遙控連開四槍，並把實驗短片上載到互聯網上炫耀，令人擔心不法之徒仿傚；同月台北亦發生無人機撞擊１０１大樓外牆的事件。關於無人機的規管事宜，政府可否告知本會：
（一）鑑於按現行法例，放飛重量不超過七千克（不計燃料）的無人機作閒暇活動，可歸類為放飛無線電控制模型飛機，一律無須向民航處申請，但放飛超過該重量的無人機作閒暇活動卻必須事先獲民航處許可，政府會否考慮盡快修訂有關法例，統一對放飛不同重量的無人機作閒暇活動的規管，並訂立無人機操作守則；若會，詳情為何；若否，原因為何；
（二）鑑於無人機的用途日趨廣泛，政府會否考慮就供不同用途的無人機的製造、進口和銷售方面進行規管，以便在不窒礙有關行業健康發展的前提下，保障公眾安全；若會，詳情為何；若否，原因為何；及
（三）會否考慮與有關的專業團體合作，就無人機的用途和操作、避免侵犯私隱，以及保障公眾安全等議題加強宣傳及教育工作；若會，詳情為何；若否，原因為何？
答覆：
主席：
就盧偉國議員的提問，現答覆如下：
（一）無人駕駛飛機系統（無人機）屬航空器的一種，在飛行安全方面，受民航條例規管。根據香港法例第４４８Ｃ章《１９９５年飛航（香港）令》（「飛航（香港）令」）第３及第７條的規定，所有航空器必須獲得民航處或其所屬民航當局發出的「飛機登記證」及「飛機適航證」，才可操作。
飛航（香港）令第１００條規定，重量不超過七千克（不計燃料）的航空器屬小型航空器，市民使用該類小型航空器，無需申請「飛機登記證」及「飛機適航證」。這政策措施旨在保障公眾安全和照顧市民消閒需要之間作出適當的平衡，亦與一些海外國家如英國和澳洲的做法相若。
然而，無論操作任何類型的無人機，操作者仍受飛航（香港）令第４８條監管。根據該條例，任何人士不得因魯莽或疏忽操作航空器而危害他人或財產安全。民航處亦制定「無線電控制模型飛機飛行安全指引」，已上載民航處網頁供公眾參考。該指引適用於不超過七千克（不計燃料）作消閒用途的小型航空器（包括無人機）。有關指引提醒市民不應在機場及飛機升降航道範圍附近放飛無人機。此外，無人機的飛行地點，必須遠離建築物、人群及直升機坪，以及一切可干擾無線電信息的電源，例如電線、變壓站、高壓電線和變壓塔等，並且必須讓操作者的視野清晰無阻，及能夠清楚看見飛行中的無人機，以免發生碰撞導致他人受傷、死亡，或造成財物損失。而任何人士若在香港操作重量超過七千克（不計燃料）的無人機作消閒用途，均須在操作前向民航處提出申請。
（二）現時國際間仍未就無人機的製造、進口、銷售和操作達成統一的準則。有鑑於使用小型無人機的情況漸趨普遍，為公眾安全起見，民航處會參考海外民航當局規管要求的進展和考慮香港的具體情况，適時檢討無人機的監管政策，並研究修訂有關法例。
（三）民航處一向非常重視安全操作無人機的宣傳及教育工作。二○一四年九月，民航處透過「警訊」節目提醒市民操作無人機應注意的事項。該短片提及適用於無人機的民航條例，同時提醒市民不得讓無人機飛越人多居住的地區、裝載危險物品或投下物件，以免危及地面上的任何人士或財產。
此外，學校、青少年團體、專業團體、航空業界、運輸及物流業界、慈善團體等會不時安排參觀民航處的航空教育徑。所有參觀人士均會有機會觀看介紹安全操作無人機的宣傳片，並由民航處的導賞員專門講解。由於無人機的使用日益普及，民航處會繼續透過不同渠道，加強宣傳和教育工作，提高有關界別和團體、以至一般市民操作無人機的安全意識。
至於保障私隱方面，個人資料私隱專員公署已於二○一五年三月發出「閉路電視監察及使用航拍機指引」，提醒航拍機（即有拍攝功能的無人機）使用者有關保障私隱的責任。該指引旨在提醒航拍機使用者知悉使用無人機進行攝錄，也受《個人資料（私隱）條例》（包括當中的保障資料原則）規管。航拍機使用者須要特別緊記尊重別人的私隱，亦應顧及和了解公眾的感受和受影響人士對私隱的合理期望。此外，該指引在航拍機攝錄功能、影像保留、影像傳輸加密等方面提供建議。
無人機除了必須依循相關民航規例安全操作外，其他活動亦須遵守香港其他法律。若無人機涉及非法用途，政府有關部門會因應其所涉及的非法活動，透過相關的法例跟進處理。
Following is a question by the Hon Lo Wai-kwok and a written reply by the Secretary for Transport and Housing, Professor Anthony Cheung Bing-leung, in the Legislative Council:
Question:
With the relevant technology maturing gradually, the prices of unmanned aircraft systems (UASs) have been on continuous decline, and they have become increasingly versatile. Flying UASs has now become a recreational activity for quite a number of members of the public. At the same time, the popularisation of UASs has brought about quite a number of new problems, including issues of public safety. For instance, in July this year, a teenager in the United States conducted an experiment in which he succeeded in remotely firing four shots in a row from an automatic handgun mounted on a UAS, and he uploaded the clip of his experiment onto the Internet for showing off, leading to the worry that lawbreakers may follow suit. Also in the same month, an incident occurred in Taipei in which a UAS hit the external wall of Taipei 101. Regarding the regulation of UASs, will the Government inform this Council:
(1) given that under the existing legislation, flying UASs weighing not more than seven kilograms (without its fuel) for recreational purpose can be classified as flying radio-controlled model aircraft, and no application to the Civil Aviation Department (CAD) is required, but prior permission from CAD is required for flying UASs exceeding this weight for recreational purpose, whether the Government will consider amending the relevant legislation expeditiously to standardise the regulation of flying UASs of different weights for recreational purpose, and drawing up the relevant codes of operation of UASs; if it will, of the details; if not, the reasons for that;
(2) as UASs have become increasingly versatile, whether the Government will consider regulating the manufacture, import and sale of UASs used for different purposes, so as to safeguard public safety on the premise of not thwarting the healthy development of the relevant industries; if it will, of the details; if not, the reasons for that; and
(3) whether it will consider collaborating with the relevant professional bodies to step up publicity and education on issues such as the uses and operation of UASs, the avoidance of privacy infringement and the safeguarding of public safety, etc.; if it will, of the details; if not, the reasons for that?
Reply:
President,
Our reply to the Hon Lo Wai-kwok's question is as follows:
(1) Unmanned aircraft systems (UASs) are one kind of aircraft, and its flight safety is regulated by the civil aviation legislation. Articles 3 and 7 of the Air Navigation (Hong Kong) Order 1995 (Cap. 448C, Laws of Hong Kong) (the Order) provide that an aircraft shall not fly unless it is issued with a Certificate of Registration and a Certificate of Airworthiness by the Civil Aviation Department (CAD) or the relevant aviation authority of that aircraft.
Article 100 of the Order provides that an aircraft weighing not more than 7 kilograms (without fuel) is classified as a small aircraft. Members of the public who use this kind of small aircraft are not required to apply for a Certificate of Registration or a Certificate of Airworthiness. This policy measure, which aims to strike a proper balance between safeguarding public safety and catering to the public's recreational needs, is in line with the practice of certain overseas countries such as the United Kingdom and Australia.
Nonetheless, the operators of UASs, regardless of the types and models of UASs operated, are governed by Article 48 of the Order, which stipulates that a person shall not recklessly or negligently cause or permit an aircraft to endanger any person or property. The CAD has published a guide entitled Safety in Radio-Controlled Model Aircraft Flying and has uploaded it onto its website for the public's reference. This safety guide applies to small aircraft (including a UAS) not exceeding 7 kilograms (without fuel) used for leisure flying. Members of the public are advised not to fly a UAS in the vicinity of an airport or aircraft approach and take-off paths. As to the sites of the operations of UASs, they should be clear of buildings, people and away from helicopter landing pads, and clear of any power sources such as power lines, transformer stations, pylons and transmitter towers which might cause radio interference. The site should also be free from visual obstruction, so that the operator can see his UAS in flight, thereby avoiding any collision that may cause injuries, fatalities or damage to property. Before operating a UAS exceeding 7 kilograms (without fuel) for leisure flying in Hong Kong, the operator must lodge an application with the CAD.
(2) At present, there are still no standardised international requirements to regulate the manufacture, import, sale and operations of UASs. With the popularisation of small UASs, the CAD will, taking into account the development of regulatory requirements of overseas aviation authorities and the specific circumstances in Hong Kong, review in due course the regulatory policies on UASs and consider amending the relevant legislation, in order to ensure public safety.
(3) The CAD has been attaching great importance to publicity and educational efforts on the safe operations of UASs. In September 2014, the CAD, through the Police Report TV programme, reminded members of the public of the points to note when operating UASs. In the video clip, the civil aviation legislation applicable to UASs was introduced and members of the public were told that UASs must not be allowed to fly over populated areas, to carry hazardous materials, or to drop any objects, in order to avoid endangering any person or property on the ground.
From time to time, schools, youth organisations, professional bodies, the aviation sector, the transport and logistics sectors, charitable organisations, etc. pay a visit to the CAD's Education Path. All visitors have the opportunity to watch a promotional video clip on the safe operations of UASs, and will be specifically briefed by a docent from the CAD. Noting the growing application of UASs, the CAD will continue to strengthen its publicity and educational efforts through different channels, so as to raise the safety awareness of the relevant sectors and organisations, as well as the general public, about the operations of UASs.
On privacy protection, the Office of the Privacy Commissioner for Personal Data issued the Guidance on CCTV Surveillance and Use of Drones to remind users of drones (i.e. UASs with cameras) of their duty in privacy protection in March 2015. The guidance note reminds users of drones that the use of UASs in recording is also regulated by the Personal Data (Privacy) Ordinance (including the Data Protection Principles therein). Users of drones should be particularly mindful of the need to respect people's privacy. They should also have due regard to and have understanding of public perception and the reasonable privacy expectations of the individuals affected. Suggestions on such aspects as recording, retention and encryption of image transmission by drones are given in the guidance note.
While UASs must be operated safely in accordance with the relevant civil aviation regulations, their other activities should also be in compliance with other Hong Kong laws. If a UAS is used for illegal purposes, the government departments concerned will take follow-up action under applicable legislation depending on the illegal activities involved.
