LCQ11: Regulating use of AI-generated synthetic content
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Question:
With the rapid development of generative AI, the use of AI to generate synthetic texts, images, audios, videos, virtual scenes, etc, has gradually become an important mode of information production. However, this has also given rise to security issues such as disinformation, deepfakes and malicious output. Some countries and regions have already enacted legislation or are advancing standards and regulations regarding the labelling of AI-generated synthetic content. For example, the Mainland has implemented the "Measures for the Labelling of Artificial Intelligence Generated and Synthesised Content" since September 1, 2025, explicitly providing for the responsibilities and obligations of various parties involved in the production and dissemination of such content, while stipulating that labelling methods of text, sound, graphics, etc. must be used to remind users. It has also issued the national mandatory standard of "Cybersecurity technology - Labelling method for content generated by artificial intelligence". The European Union has also initiated the formulation of the "Code of Practice on marking and labelling of AI-generated content". In this connection, will the Government inform this Council:
(1) of the respective numbers, loss amounts involved and detection rates of reported blackmail cases received since 2025 involving deepfake information such as AI-generated synthetic texts, images, audios and videos;
(2) given that criminals using deepfake technology to commit fraud tend to impersonate well-known public figures in order to enhance credibility, whether the authorities will consider enacting legislation to protect personality rights by restricting any unauthorised use of AI technologies to falsify voices, photographs or videos without the consent of the persons concerned; if so, of the details; if not, the reasons for that; and
(3) whether the authorities will, by drawing on practices in other jurisdictions, enact legislation to regulate the labelling of AI-generated synthetic content, so as to explicitly provide for the responsibilities and obligations of various parties involved in the production and dissemination of such content; if so, of the details; if not, the reasons for that?
Reply:
President,
Regarding the question raised by the Hon Michelle Tang, upon consulting the Security Bureau and the Department of Justice, the response is as follows:
(1) From January 2025 to May 2026, the Police received a total of 2 143 blackmail cases. Under the Theft Ordinance (Chapter 210), any person who commits the offence of blackmail is liable to a maximum penalty of imprisonment for 14 years. As AI is not an independent category of crime but merely one of the tools or means that can be used to commit the offence of blackmail, the Police do not maintain a breakdown of statistics on the number of blackmail cases involving the use of AI.
In response to the risks posed by novel crimes arising from AI, the Police will continue to strengthen their deployment and response on multiple fronts, including intelligence analysis, industry collaboration and international co-operation. Intelligence-led enforcement actions will be taken as appropriate.
(2) and (3) The Government attaches great importance to the development and application of AI technology, and is committed to ensuring that the members of the public possess sufficient safety awareness and literacy when using such technologies. In April 2025, the Digital Policy Office published the Hong Kong Generative Artificial Intelligence Technical and Application Guideline (the Guideline), constructing a governance framework with local characteristics that is suitable for Hong Kong's specific circumstances for all stakeholders in the AI ecosystem, with a view to balancing AI innovation, application and responsibility. The Guideline also recommends that, to ensure transparency, accountability and safety, service users should explicitly indicate by watermarks, labels, metadata, digital signatures, etc, whether generative AI has been involved in content generation or decision-making. The Government will continue to closely monitor the technology development, application and development of AI in Hong Kong, and drawing on practices from different regions, to update the Guideline in a timely manner with a view to appropriately addressing the various opportunities and challenges presented by AI technology.
On legal framework, to evaluate whether the laws under different policy areas can keep pace with technological developments (including AI), the Secretary for Justice convened a Steering Committee meeting in March this year on the establishment of the Inter-Departmental Working Group to Review Legislation to Support Wider Application of AI (Working Group). Establishing a Working Group with its core members comprising representatives from different policy bureaux and government departments (B/Ds) is crucial for addressing issues arising from the rapid development and widespread application of AI.
The goal of the Working Group is for B/Ds to conduct a comprehensive and in-depth review of existing laws to identify any loopholes or deficiencies, before exploring targeted and practicable solutions (including considering the need for, and feasibility of, enacting bespoke legislation or implementing administrative measures) in light of Hong Kong's actual circumstances. Based on the preliminary study of the relevant B/Ds, the Working Group will take forward further specific review work on how to promote safe and responsible use and development of AI.
Meanwhile, the Law Reform Commission published the Report on Cyber-Dependent Crimes and Jurisdictional Issues in January this year. The Sub-committee on Cybercrime under the Law Reform Commission (Sub-committee) is also studying the existing laws from the angle of cyber-enabled crimes, which may include offences involving deepfake technology, and will consult the public in due course. In recognition of the fact that the Sub-committee is conducting research into other aspects relating to cybercrime, the Government will study the relevant contents carefully and thoroughly, aiming to formulate more comprehensive legislation to address the challenges to public order arising from advancements in information technology.
Apart from the above work, the Government will also, in line with the overall policy direction of promoting the safe and responsible development of AI, explore ways to further strengthen Hong Kong's governance capabilities in addressing AI and data risks, application security, governance standards and cybersecurity, etc, through a regulatory and standardised governance framework.
Ends/Wednesday, July 15, 2026
Issued at HKT 14:56
Issued at HKT 14:56
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