A small, four-rotor drone hovered over Washington Nationals players for a few days during spring training in Florida last month, taking publicity photos impossible for a human photographer to capture. But no one got the Federal Aviation Administration’s permission first. The agency bars commercial use of drones no matter how seemingly benign. The lone exception is an oil company that has been granted permission to fly drones over the Arctic Ocean, and it took an act of Congress to win that concession.