LCQ5: Improving Real-name Registration Programme for SIM Cards
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There are views that since the full implementation of the Real-name Registration Programme for SIM Cards (RNR Programme) in 2023, the number of telephone fraud cases in Hong Kong has remained high, reflecting that there is room for further improvement of the RNR Programme. In this connection, will the Government inform this Council:
(1) as the authorities have reportedly indicated that over 97 per cent of users have registered one to three SIM cards each, and a study will be conducted on lowering the maximum registration limit of pre-paid SIM cards for users, of the latest progress and anticipated completion timetable of this study;
(2) whether the authorities have conducted a root analysis of each telephone fraud case to ascertain the channels through which fraudsters obtain telephone numbers and commit frauds, thereby plugging loopholes at source, if so, of the details; if not, the reasons for that; and
(3) as there are views that while Hong Kong identity (HKID) card holders can register via "iAM Smart", non-HKID holders may also register using other identification documents, thus posing a risk of identity theft, whether the authorities will consider introducing a requirement for real-time facial recognition as part of the user identity authentication process, so as to verify that the registrant is the same person and to reduce the risk of fraudulent use of their identification documents by third parties; if so, of the details; if not, of the reasons for that?
Reply:
President,
Given Hong Kong's status as a regional communications hub, the Government attaches great importance to the integrity and effectiveness of Hong Kong's telecommunications system. The First Five-Year Plan for Economic and Social Development of the Hong Kong Special Administrative Region (2026-2030) sets out that the Government will step up efforts to prevent and combat telecommunications fraud and cyber fraud. The Office of the Communications Authority (OFCA) has been working closely with the Hong Kong Police Force (Police) and major telecommunications service providers (TSPs) to combat telephone fraud through a multi-pronged approach. In response to the question raised by the Hon Chu Lap-wai, and in consultation with the Security Bureau and OFCA, the consolidated reply is as follows:
The Real-name Registration Programme for SIM Cards (RNR Programme) was fully implemented in February 2023, requiring that all SIM cards issued and used locally (including SIM Service Plan (SSP) and pre-paid SIM (PPS) cards) must complete real-name registration before service activation. Apart from the various requirements of the RNR Programme as stipulated in the Telecommunications (Registration of SIM Cards) Regulation (Cap. 106AI), the Communications Authority (CA) has also issued detailed guidelines to provide specific operational details and requirements of the RNR Programme for TSPs. On ascertaining users' identities, the CA guidelines set out that TSPs are required to adopt different measures to verify information of their users, including face-to-face registration, making use of optical character recognition technology to automatically capture information from identity documents, manual verification of information, etc, so as to effectively verify users' identity documents and ensure that the registration systems comply with the requirements of the Regulation and the guidelines.
OFCA has been closely monitoring market developments and has launched various enhancement measures taking into account the operational experience, including requiring TSPs to conduct regular sampling checks on the registration information of registered PPS cards and to deregister the relevant PPS cards where registered information is unable to be verified, requiring TSPs to adopt "iAM Smart" as the default registration method for Hong Kong identity (HKID) card holders under the RNR Programme, and to carry out comprehensive manual checking of registration details for the PPS cards submitted via the online registration platform by users who are non-HKID holders, etc. TSPs will also proactively refer suspected illegal cases for the handling by the Police.
As a matter of fact, the Police have always attached great importance to investigating every case of telephone fraud and conducting root-cause analysis. According to investigations and analysis by the Police, past cases have shown that fraud syndicates obtain pre-registered local PPS cards from the market, or persuade others to provide their personal information for the registration of PPS cards to facilitate their use of such PPS cards for phone deception activities. These syndicates also utilise Voice over Internet Protocol (VoIP) services to commit fraud. This involves making fraudulent calls from outside the jurisdiction or via virtual online identities, utilising VoIP applications provided by local TSPs.
In order to swiftly prevent fraud syndicates from using telephone services to commit fraudulent activities, since September 2022, the Police and major TSPs have established a mechanism, requiring TSPs to promptly block the telephone numbers suspected of being involved in fraudulent activities and suspend the known fraudulent VoIP numbers based on the records provided by the Police. As at the end of September 2026, TSPs have blocked the services of over 18 000 local and non-local telephone numbers.
Having regard to the analysis of telephone fraud provided by the Police and the operational experience since the implementation of the RNR Programme, we recommend significantly lowering the maximum registration limit of the number of PPS cards for individual users from the existing limit of 10 PPS cards per TSP per person to three PPS cards per TSP per person. According to the analysis on statistics provided by TSPs, about 98 per cent of individual users have registered no more than three PPS cards with each TSP. The Government anticipates that the significant reduction in the maximum registration limit of the number of PPS cards will help minimise the risks of PPS cards being exploited by criminals for fraudulent purposes, while ensuring that such adjustment will not affect the vast majority of users.
In addition, to combat the improper use of registered SIM cards, the Government proposes to criminalise certain improper conducts, such as provision of personal information for the registration of a SIM card intended for use by another person as well as purchase, sale, rental, borrowing or other activities involving supply or acquisition of registered SIM cards without lawful authority or reasonable excuse or justification. This proposal is intended to deter fraud syndicates from purchasing SIM cards registered under others' identities from the market, thereby increasing the cost and risks for criminals to commit offences. The Government is actively preparing the details for legislative amendments and plans to consult the public and the industry on the proposals as soon as possible in the coming months.
The Government aspires to ensure the long-term security and stability of Hong Kong's telecommunications environment and safeguard public interests through enhancing the RNR Programme and other measures to combat telephone fraud through the collaboration among the Government, business sector and the public. Thank you, President.
Ends/Wednesday, November 11, 2026
Issued at HKT 15:20
Issued at HKT 15:20
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