A big part of the problem would seem be the camera, or looking at the ground. If you're flying an R/C airplane, watching the plane fly, controlling it, etc. is the name of the game. With drones... it's obviously the video from the drone that's the big part.
So I may own the ground and the FCC may own the air. But who regulates the camera? If the drone were just something you'd fly and zoom around like the R/C aircraft, no problem. Photographing what's on the ground (like a sunbathing neighbor) is something else.
These two need to be blended somewhere. Once upon a time, it was common courtesy that you didn't intrude on the neighbor's privacy. Now it seems the norm. Privacy from all sectors, tech, government, and now the neighbors is becoming hard to find.