To implement the decisions and plans of the central and provincial governments regarding the development of the low-altitude economy, seize and make full use of the strategic opportunities presented by the rapid growth of the low-altitude economy and intensive industrial innovation, promote the continuous improvement of our city’s low-altitude economy in terms of industrial scale, infrastructure, application scenarios, and innovation capabilities, accelerate the development of future industries, and foster the growth of new productive forces, this implementation plan has been formulated in accordance with the actual conditions of our city.
I. General Approach
Guided by Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, we will fully implement the spirit of the 20th National Congress of the Communist Party of China and General Secretary Xi Jinping’s important speeches and instructions regarding Jiangsu’s work. We will adhere to industrial development as the core, technological innovation as the driving force, application scenarios as the catalyst, and infrastructure as the foundation. By attracting and cultivating low-altitude industry projects, improving low-altitude infrastructure, expanding low-altitude application scenarios, and enhancing low-altitude innovation capabilities,we will steadily advance the development and cultivation of the entire industrial chain, strive to explore a low-altitude economic development path suited to Xuzhou, and build a hub for low-altitude economic development in the Huaihai Economic Zone.
II. Work Objectives
By 2026, the city’s low-altitude economy will have achieved phased results.The industry will have reached a preliminary scale, with approximately 50 low-altitude economy-related enterprises and about 15 specialized, refined, distinctive, and innovative enterprises; infrastructure will be continuously improved, establishing a “3 (Xuzhou Guanyin Airport, Xinyi General Aviation Airport, Peixian Yangmiao Airport) + 3 (opening 3 low-altitude air routes) + 30 (constructing 30 aircraft takeoff and landing sites)” system;Scenario applications will be effectively expanded, with application scenarios driving industrial development and 8 new low-altitude application scenarios added; innovation capabilities will be accelerated, with the establishment of at least 5 science and technology innovation platforms, including low-altitude economy-related engineering (technology) research centers and enterprise technology innovation centers; and the low-altitude service management and support mechanisms will be gradually improved.
By 2030, we will explore the development of cross-provincial collaborative application scenarios for the low-altitude economy, promote the low-altitude economy as a new engine for the development of the city’s new-quality productive forces, and strive to build a hub for low-altitude economic development in the Huaihai Economic Zone.
III. Key Tasks
(1) Low-Altitude Industrial Cluster Cultivation Project
1. Attracting Low-Altitude Industry Projects.Compile a low-altitude economy industry map for Xuzhou City. Encourage local governments and relevant departments to focus on key segments of the low-altitude industry chain, targeting leading enterprises in fields such as low-altitude infrastructure, low-altitude aircraft manufacturing, low-altitude operational services, and low-altitude flight support, and actively attract a batch of strategic, landmark, and pioneering industrial projects. Give priority to recommending eligible projects for inclusion in provincial and municipal lists of major projects, ensure the supply of production factors, coordinate and schedule resources, and promote the swift commencement of construction and the timely completion and commissioning of projects.[Lead Agency: Municipal Bureau of Commerce; Responsible Agencies: Municipal Development and Reform Commission, Municipal Bureau of Industry and Information Technology, Municipal Bureau of Natural Resources and Planning, Municipal Bureau of Ecology and Environment, etc., to be responsible according to their respective duties; all counties (cities, districts), Xuzhou Economic and Technological Development Zone, Xuzhou High-Tech Industrial Development Zone, and Xuzhou Huaihai International Port Area (all tasks below must be implemented by localities and will not be listed separately)]
2. Foster industry-leading enterprises. Support existing enterprises in the low-altitude economy industrial chain in Xinyi City, Suining County, Jiawang District, the Economic and Technological Development Zone, and the High-Tech Industrial Development Zone to grow and strengthen their operations. Encourage key enterprises in manufacturing sectors such as aircraft manufacturing, critical raw materials, and components to increase R&D investment and extend their industrial chains. Promote key enterprises in service sectors such as aviation logistics and cultural, sports, and tourism to expand their operational scale and create clustering effects.Promote the growth and expansion of newly attracted enterprises, accelerate the cultivation of a group of specialized, refined, distinctive, and innovative “Little Giants” and “Single-Champions” enterprises, and continuously enhance the scale and competitiveness of the low-altitude economy industry. (Lead Agencies: Municipal Bureau of Industry and Information Technology, Development and Reform Commission; Responsible Agencies: Municipal Science and Technology Bureau, Bureau of Culture, Radio, Television, and Tourism, etc., to be responsible according to their respective duties)
3. Develop Specialized Industrial Parks. Leverage the aviation industry platform advantages of the Xuzhou Airport Economic Development Zone to define its development positioning and foster the growth of industries such as aviation materials and intelligent manufacturing. Relying on Xinyi’s general aviation industry strengths, vigorously develop the Xinyi Aviation Industrial Park by focusing on three major sectors: general aviation manufacturing and maintenance, general aviation operational services, and general aviation cultural tourism.Support the Yangmiao Airport in Pei County in actively expanding business operations such as agricultural and forestry plant protection by utilizing its existing equipment and personnel base. (Lead Agencies: Municipal Bureau of Commerce, Municipal Bureau of Industry and Information Technology; Responsible Agencies: Municipal Bureau of Transportation, Municipal Bureau of Culture, Radio, Television, and Tourism, Municipal Bureau of Agriculture and Rural Affairs, Municipal Bureau of Natural Resources and Planning, Guanyin Airport, etc., to be responsible according to their respective duties)
4. Promote integrated industrial development. Leveraging the strengths of Xuzhou’s “343” innovation industrial clusters—including new energy, new materials, integrated circuits and ICT, safety and emergency response, and high-quality steel—we will focus on key segments such as raw materials, batteries, chips, and sensors to empower the R&D and manufacturing of low-altitude equipment, including unmanned aerial vehicles (UAVs), eVTOLs, and general aviation aircraft.Support low-altitude manufacturing, R&D, and operations enterprises in utilizing various exhibition centers and trade fairs to conduct activities such as the display, demonstration, and sale of low-altitude equipment, thereby establishing a low-altitude equipment exhibition and trade center in the Huaihai Economic Zone. Encourage financial institutions and local financial organizations to extend aircraft financial leasing services to the low-altitude economy sector, and encourage insurance institutions to launch specialized insurance products tailored to different categories of aircraft and various application scenarios.(Lead Agency: Municipal Bureau of Industry and Information Technology; Responsible Agencies: Municipal Government Office, Commerce Bureau, Development and Reform Commission, People’s Bank of China Xuzhou Branch, Xuzhou Regulatory Bureau of the National Financial Regulatory Administration, etc., to be responsible according to their respective duties)
(2) Low-Altitude Infrastructure Construction Project
5. Coordinate the construction of ground infrastructure. Taking into comprehensive consideration current needs, development trends, and cost-effectiveness, scientifically plan and construct ground takeoff and landing facilities for low-altitude aircraft, and gradually improve supporting facilities to meet the operational needs of various low-altitude aircraft, including takeoff, landing, alternate landing, parking, maintenance, and refueling.Fully leverage and utilize the functions of existing airport facilities such as Xuzhou Guanyin Airport, Xinyi General Aviation Airport, and Peixian Yangmiao Airport, and explore the establishment of an interconnected system of takeoff and landing sites among these facilities. In eligible areas such as commercial districts, industrial parks, scenic spots, medical institutions, sports venues, logistics hubs, fire and rescue stations, and emergency supply warehouses, plan and construct low-altitude aircraft takeoff and landing sites (points) and supporting facilities as needed.(Lead Agency: Municipal Transportation Bureau; Responsible Agencies: Municipal Housing and Urban-Rural Development Bureau, Bureau of Natural Resources and Planning, Bureau of Ecology and Environment, Bureau of Commerce, Bureau of Culture, Radio, Television, and Tourism, Health Commission, Sports Bureau, Fire and Rescue Bureau, etc., to be responsible according to their respective duties)
6. Optimize and Improve Information Infrastructure. Gradually optimize and integrate foundational platforms such as urban information models, spatiotemporal big data, basic territorial spatial information, and real-world 3D models. Consolidate key information on low-altitude airspace resources to create an integrated air-ground digital twin foundation. Establish low-altitude flight service stations and a comprehensive drone supervision and service platform to support low-altitude flight applications.Support telecommunications operators, research institutions, and enterprises in Xuzhou to orderly advance the construction of low-altitude communication, navigation, surveillance, meteorological, and electromagnetic facilities. Explore the use of general urban maps, artificial intelligence, image perception, BeiDou positioning, and 5G/5G-A technologies to enhance communication, navigation, and perception capabilities as well as low-altitude intelligent connectivity. Build a low-altitude Internet of Things (IoT) network featuring interconnected facilities and information exchange to provide digital infrastructure support for the low-altitude management and service system.(Lead Agencies: Municipal Housing and Urban-Rural Development Bureau, Data Bureau, Bureau of Natural Resources and Planning, Transportation Bureau, Xuzhou Telecommunications Administration Office; Responsible Agencies: Municipal Urban Management Bureau, Public Security Bureau, Meteorological Bureau, etc., to be responsible according to their respective duties)
7. Classify and demarcate low-altitude flight routes and airways. In accordance with national regulations on the demarcation of airspace and control zones for unmanned aerial vehicles, and in conjunction with the actual needs of Xuzhou’s low-altitude airspace, leverage the low-altitude digital network to conduct planning and intelligent research on low-altitude flight routes and airways, and optimize the citywide network layout. Actively coordinate with military and civil aviation authorities to ensure the orderly and safe operation of low-altitude aircraft and promote the effective utilization of low-altitude airspace resources.(Lead Agency: Municipal Transportation Bureau; Responsible Agencies: Municipal Public Security Bureau, Guanyin Airport, etc., to be responsible according to their respective duties)
(3) Low-Altitude Application Scenario Development Project
8. Explore applications in transportation scenarios. Develop low-altitude flight services for the Xuzhou metropolitan area, build a route network centered on Xuzhou and radiating across the Huaihai Economic Zone, and promote the development of regional short- and medium-distance transportation. Relying on Xuzhou Guanyin Airport and Xinyi General Aviation Airport, explore passenger and cargo routes that effectively integrate “airport-based” and “low-altitude” operations.Support leading logistics enterprises with specific application needs in conducting pilot programs for drone logistics delivery and developing on-demand drone delivery services. Develop inter-city flight scenarios and explore the use of eVTOLs and helicopters to provide chartered flight services, fostering new transportation models such as short-haul flights, official flights, and business flights in surrounding areas. (Lead Agency: Municipal Transportation Bureau; Responsible Agencies: Municipal Postal Administration, Guanyin Airport, etc., to be responsible according to their respective duties)
9. Expand applications in public service scenarios. Strengthen collaboration between government and enterprises to identify public service applications for low-altitude operations and broaden the scope of low-altitude aircraft usage. Fully advance existing applications such as patrols and inspections, emergency rescue, urban landscape management, land surveying, power grid maintenance, and ecological and environmental monitoring. Actively expand applications in areas such as government services, medical services, agricultural and forestry pest control, and urban-rural governance, while continuously developing other application areas based on local conditions.(Lead Agency: Municipal Data Bureau; Responsible Agencies: Municipal Transportation Bureau, Public Security Bureau, Emergency Management Bureau, Urban Management Bureau, Housing and Urban-Rural Development Bureau, Health Commission, Agriculture and Rural Affairs Bureau, Natural Resources and Planning Bureau, Ecology and Environment Bureau, Fire and Rescue Bureau, Power Supply Company, etc., to be responsible according to their respective duties)
10. Expand applications in consumer aviation scenarios. Support the Jiawang National Aviation Flight Camp in hosting aviation sports and commercial activities such as paragliding, hang gliding, and light aircraft operations. Promote the development of low-altitude sightseeing tourism at scenic spots such as Yunlong Lake, Luoma Lake, Dugong Lake, and the Horticultural Expo Park to create new cultural and tourism hotspots in Xuzhou. Support the development of the low-altitude consumer market through measures such as issuing government consumption vouchers.Innovate new drone-based aviation and cultural tourism formats, and support activities such as drone formation displays and aerial photography and videography. Leveraging Xuzhou Guanyin Airport, Xinyi General Aviation Airport, and Peixian Yangmiao Airport, provide aviation education, training, and study tours in areas such as pilot license training, self-piloted flight experiences, and aviation science popularization for youth.(Lead Agencies: Municipal Bureau of Culture, Radio, Television, and Tourism; Municipal Sports Bureau; Responsible Agencies: Municipal Transportation Bureau, Municipal Education Bureau, Guanyin Airport, etc., to be responsible according to their respective duties)
(IV) Low-Altitude Innovation Capacity Enhancement Project
11. Promote research and development of key core technologies. Fully leverage the role of enterprises as the core drivers of technological innovation in the low-altitude economy industry, and support enterprises in conducting technological R&D in areas such as key raw materials for low-altitude aircraft, small and micro engines, core components, power batteries, onboard systems, and safety control. For enterprises that achieve major breakthroughs in key core technologies and hold a leading position in the industry, provide support in securing pilot demonstrations, special funds, and other policy benefits.(Lead Agency: Municipal Science and Technology Bureau; Responsible Agencies: Municipal Industry and Information Technology Bureau, Finance Bureau, Development and Reform Commission, etc., to be responsible according to their respective duties)
12. Establish Low-Altitude Economic Technology Innovation Platforms. Encourage key enterprises in the low-altitude economy to collaborate with universities in Xuzhou, such as China University of Mining and Technology and Jiangsu Normal University, to establish technology innovation platforms—including engineering (technology) research centers and technology innovation centers—focused on the low-altitude economic industrial chain. Support research institutes in undertaking high-level research tasks, concentrating efforts on tackling key core technologies and conducting forward-looking technological research.Guide relevant enterprises and innovation platforms across the upstream and downstream segments of the low-altitude economy industrial chain to deepen cooperation, thereby accelerating the transformation of scientific and technological achievements into industrial applications. (Lead Agency: Municipal Science and Technology Bureau; Responsible Agencies: Municipal Bureau of Industry and Information Technology, Municipal Education Bureau, etc., to be responsible according to their respective duties)
13. Strengthen the Recruitment and Cultivation of Low-Altitude Innovation Talent. Intensify efforts to recruit and cultivate talent in the low-altitude sector, specifically fostering and attracting high-level research institutions, expert teams, and technical specialists to meet the demand for high-end talent in the low-altitude economy. Relying on Xuzhou Guanyin Airport, the Xinyi Aviation Industrial Park, and relevant enterprises, cultivate a cohort of low-altitude technical personnel. Support local institutions of higher education in establishing low-altitude economy-related academic programs at appropriate times, deepen the integration of industry and education, and cultivate a talent reserve for the development of the low-altitude economy.(Lead Agency: Municipal Party Committee Organization Department; Responsible Agencies: Municipal Science and Technology Bureau, Municipal Industry and Information Technology Bureau, Municipal Education Bureau, Guanyin Airport, etc., to be responsible according to their respective duties)
(V) Low-Altitude Service Management and Support Project
14. Strengthen low-altitude safety safeguards. Establish a low-altitude safety management mechanism, clarify the management responsibilities of all parties, research and formulate emergency response management measures, and enhance the education and training of relevant personnel to improve risk prevention and safety assurance capabilities. Deploy drone detection and countermeasure facilities in key sensitive areas in accordance with regulations, and intensify supervision and crackdowns on illegal low-altitude flights, the use of drones to commit crimes, and the unauthorized use of countermeasure facilities and equipment.Research and establish security and confidentiality mechanisms to strengthen the management of flight activities, data information, and citizen privacy. Construct dedicated low-altitude meteorological monitoring and early warning facilities and service platforms as needed to provide high-precision meteorological support for low-altitude flight safety. (Lead Agency: Municipal Transportation Bureau; Responsible Agencies: Municipal Cyberspace Administration Office, Bureau of State Secrets and Confidentiality, Municipal Public Security Bureau, Emergency Management Bureau, Industry and Information Technology Bureau, Data Bureau, Meteorological Bureau, Fire and Rescue Bureau, Guanyin Airport, etc., to be responsible according to their respective duties)
15. Improve low-altitude inspection and maintenance services. Leveraging the Xinyi Aviation Industrial Park, accelerate the development of a comprehensive inspection and testing platform covering the entire industrial chain of aircraft, onboard systems, components, parts, and materials. Establish a test flight base capable of meeting diverse testing needs, including research, compliance verification, scenario-based testing, and factory acceptance testing. Support low-altitude manufacturing enterprises and specialized maintenance organizations in expanding their services for the maintenance and modification of low-altitude aircraft.(Lead Agency: Municipal Market Regulation Bureau; Responsible Agencies: Municipal Industry and Information Technology Bureau, Municipal Transportation Bureau, Guanyin Airport, etc., to be responsible according to their respective duties)
IV. Support Measures
16. Strengthen Organizational Leadership. Establish a working mechanism to promote the high-quality development of the low-altitude economy. The Municipal Development and Reform Commission will coordinate and oversee the overall progress, while relevant municipal departments will respectively lead efforts in industrial development, infrastructure construction, and scenario applications, study major policies and matters, and resolve key issues. The Municipal Industry and Information Technology Bureau will take the lead in low-altitude industrial development, formulate an action plan for low-altitude industrial development, compile a low-altitude economic industrial chain map, and promote the growth and expansion of the low-altitude industry;The Municipal Transportation Bureau shall take the lead in low-altitude infrastructure construction, formulate an action plan for low-altitude infrastructure development, and advance the planning and construction of such infrastructure; the Municipal Data Bureau shall take the lead in low-altitude application scenarios, formulate an action plan for expanding low-altitude application scenarios, and promote the innovative development of “low-altitude + application scenarios.” (Responsibility lies with the Municipal Development and Reform Commission, Industry and Information Technology Bureau, Transportation Bureau, Data Bureau, Science and Technology Bureau, and other relevant departments according to their respective duties)
17. Strengthen Resource Support. Actively coordinate land use resources and fully utilize public spaces such as squares and parks to facilitate the deployment of low-altitude infrastructure. Expand channels for supplying high-quality industrial space, and leverage various spatial resources within the city—including maker spaces, incubators, and industrial parks—to provide market entities in the low-altitude economy with multi-level, multi-demand, and multi-scenario space support throughout their entire lifecycle. Effectively integrate relevant plans to ensure the provision of essential resources—such as land, energy, and water—for major project construction.(Responsibility lies with the Municipal Bureau of Natural Resources and Planning, the Municipal Bureau of Housing and Urban-Rural Development, the Municipal Water Affairs Bureau, and other relevant departments according to their respective duties)
18. Strengthen Financial Support. Fully leverage the guiding role of the Jiangsu Province Intelligent Manufacturing (Xuzhou) Industrial Special Fund to mobilize social capital in support of the city’s low-altitude economy development. Coordinate the use of existing industrial development funds to accelerate the incubation and cultivation of high-potential projects in the low-altitude economy sector. Encourage all districts and sub-districts to increase support for low-altitude economy enterprises, ensure the efficient and targeted supply of key resources, and establish a city-county coordinated financial support mechanism. (Responsibility lies with the Municipal Finance Bureau, State-owned Assets Supervision and Administration Commission, and other relevant departments according to their respective duties)
19. Strengthen statistical monitoring. In accordance with the national and provincial statistical catalogs for key areas and methods of the low-altitude economy, compile a citywide directory of low-altitude economy enterprises, implement the statistical methods specified by higher authorities, and establish and improve the statistical monitoring system for the low-altitude economy. Enhance dynamic monitoring, analysis, research, and application of results regarding the development of the low-altitude economy to accurately reflect the development trends of our city’s low-altitude economy. (The Municipal Bureau of Statistics, Development and Reform Commission, Bureau of Industry and Information Technology, Bureau of Transportation, and Bureau of Science and Technology, among others, shall be responsible in accordance with their respective duties)
20. Strengthen policy promotion. Leverage the role of mainstream and new media to intensify publicity regarding the city’s low-altitude economy policies and development achievements; participate in and organize low-altitude economy development events; actively conduct aviation science popularization and education; enhance public awareness and acceptance of the low-altitude economy; and foster a favorable environment for the development of the low-altitude economy. (Responsibility lies with the Municipal Publicity Department, Municipal Development and Reform Commission, Municipal Industry and Information Technology Bureau, Municipal Transportation Bureau, Municipal Data Bureau, Municipal Science and Technology Bureau, and other relevant departments according to their respective duties)
