Original Title: Notice from the Municipal Government Office on Issuing the Action Plan for Accelerating the Innovation of “Low-Altitude +” Scenario Applications in Xuzhou
To implement the decisions and arrangements of the central and provincial governments regarding the promotion of low-altitude economic development, accelerate the innovation of “Low-Altitude+” application scenarios in our city, and expedite the formation of new-quality productive forces, this Action Plan is hereby formulated in light of our city’s actual conditions.
I. Main Objectives
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. Adhering to the principles of government guidance, market-driven development, local adaptation, and coordinated development, we will focus on key sectors to develop and open up a rich and diverse range of “Low-Altitude + N” application scenarios. We will promote the expansion of demonstration and commercial application scenarios, strive to stimulate consumer vitality, and create new business models, new lifestyle experiences, and new governance models for low-altitude economic applications.
By 2026, we aim to promote the addition of 8 new “Low-Altitude +” application scenarios, establish a number of low-altitude application demonstration bases, develop a series of benchmark demonstration scenarios, and create a range of distinctive branded products. Low-altitude flights in the public service sector will become scaled and routine. By 2030, we will explore application scenarios for the coordinated development of the low-altitude economy across provincial borders, expand the scale of low-altitude applications, and use scenario applications to foster and strengthen the low-altitude market, thereby driving the development of low-altitude flight.
II. Key Tasks
1. Develop “Low-Altitude +” Smart Logistics Models. Accelerate research into low-altitude logistics solutions, deploy a “trunk-feeder-last-mile” drone delivery network, and establish new “Low-Altitude +” smart logistics application models.In compliance with safety requirements, establish drone logistics nodes in conjunction with existing logistics parks, major commercial districts, and express sorting centers; launch “point-to-point” drone logistics routes; promote same-city on-demand delivery and cross-city express delivery; and foster the healthy development of urban smart and green logistics. Support logistics enterprises in leveraging the advantages of air express transfer centers to conduct demonstration projects for inter-city transportation and last-mile delivery.Encourage localities to include low-altitude products in the catalog of key business exhibitions and trade fairs. Encourage regions or enterprises with the necessary conditions to explore the “drone + autonomous vehicle + automated warehouse” delivery model, continuously expanding the scale and scope of low-altitude delivery applications. Explore the establishment of micro-service stations in pilot residential communities to integrate the diverse functions of low-altitude logistics for the “last mile.” Strengthen connectivity with other modes of transportation to promote the sustainable operation of “Low-Altitude+” smart logistics, achieving a low-altitude logistics network that connects cities and counties while serving both urban and rural areas.[Lead Agencies: Municipal Transportation Bureau, Development and Reform Commission, Postal Administration; Responsible Agencies: Municipal Commerce Bureau, Housing and Urban-Rural Development Bureau, Xuzhou Guanyin Airport, etc., to be responsible according to their respective duties; People’s Governments of all counties (cities, districts), Xuzhou Economic and Technological Development Zone, Xuzhou High-Tech Industrial Development Zone, and Xuzhou Huaihai International Port Area (hereinafter, all localities are required to implement these measures, and will not be listed individually)]
2. Establish a “Low-Altitude +” medical service system. Leverage regional medical resources to accelerate the launch of “air lifelines” and promote “air express” medical transport, meeting the public’s diverse and multi-level health needs. Support major hospitals that meet the requirements in establishing low-altitude flight medical rescue bases and deploying low-altitude flight takeoff and landing platforms to enable rapid allocation and sharing of medical resources.Accelerate the promotion and utilization of low-altitude transport models to deliver medical supplies such as blood, emergency medications, laboratory specimens, and surgical consumables, benefiting the public through smart and digital solutions. Increase efforts to recruit and train experienced low-altitude medical rescue personnel to provide technical support for medical services. Encourage and support enterprises, social organizations, and other entities to participate in the development of the low-altitude medical rescue sector.Explore the use of drone medical delivery services for rapid diagnosis of critically ill patients, shortening response times and improving treatment success rates. (Lead Agency: Municipal Health Commission)
3. Stimulate the vitality of “Low-Altitude +” cultural and tourism consumption. Based on airspace planning and scenic area conditions, actively guide and support the development of various emerging low-altitude economy consumption projects to build new consumption models such as “Low-Altitude +” sports and “Low-Altitude +” cultural tourism.Leveraging facilities such as Xuzhou Guanyin Airport, Xinyi Qipan General Aviation Airport, and the Jiawang Dugong Lake Aviation Camp, provide low-altitude services including aviation study tours, model aircraft construction, and flight experiences. Utilizing tourist attractions and theme parks, conduct operational activities such as low-altitude sightseeing, aerial photography and videography, and formation displays. Fully leverage the advantages of historical and cultural resources, ecological resources, and revolutionary heritage to plan and promote the launch of low-altitude tourism routes in scenic areas, thereby accelerating the growth of low-altitude tourism consumption.Strengthen publicity for low-altitude cultural, sports, and tourism activities, and promote the introduction of low-altitude aircraft culture and science education into schools and classrooms. Support the hosting of aviation exhibitions and forums, and organize various types and levels of aviation sports and drone competitions. (Lead Agencies: Municipal Bureau of Culture, Radio, Television, and Tourism; Municipal Sports Bureau; Municipal Education Bureau; Responsible Agencies: Municipal Transportation Bureau, Municipal Commerce Bureau, Cultural Tourism Group, etc., to be responsible according to their respective duties)
4. Promote the integration of “Low-Altitude +” emergency rescue. Leveraging the infrastructure of civil aviation and general aviation airports, actively advance regional aviation rescue cooperation, and facilitate the sharing of aviation rescue resources to provide robust safety guarantees for regional integrated development.Deploy emergency aviation rescue standby bases and implement a grid-based network of police drones (mobile command units), promote integrated applications, and establish a low-altitude rescue system characterized by rapid response, effective coordination, appropriate functionality, and high reliability. Expand applications in aerial reconnaissance and surveying, command and dispatch, aerial firefighting, water rescue, search and rescue for missing persons, as well as special aerial cargo transport, emergency aerial communications, and fire rescue operations in high-rise buildings.Encourage localities to accelerate the construction of aerial rescue networks, forming an emergency rescue system that integrates manned and unmanned aircraft and coordinates air-ground operations. (Lead Agencies: Municipal Emergency Management Bureau, Public Security Bureau, Fire and Rescue Detachment; Responsible Agencies: Municipal Transportation Bureau, Housing and Urban-Rural Development Bureau, etc., to be responsible according to their respective duties)
5. Promote the application of “Low-Altitude+” in urban management. Fully leverage the time-saving, labor-saving, efficient, and convenient advantages of drones to expand their application channels in urban aerial patrols, the management of illegal construction, comprehensive waste-free governance, and “refined city” construction, thereby supporting refined urban management. Accelerate the application of drones in scenarios such as construction site monitoring and building safety assessments to support the three-dimensional and healthy development of smart cities.Focusing on key areas such as the Beijing-Hangzhou Grand Canal, the South Four Lakes, and Luoma Lake, promote the efficient use of drones for river basin supervision to achieve dynamic monitoring of urban rivers and lakes, discharge outlets, and the identification and monitoring of pollutants. Strengthen “Low-Altitude +” environmental monitoring, identification, and analysis to precisely manage environmental pollution and disaster impacts, providing timely data support for environmental protection and risk management.(Lead Agencies: Municipal Urban Management Bureau, Housing and Urban-Rural Development Bureau, Transportation Bureau, Ecology and Environment Bureau; Responsible Agencies: Municipal Natural Resources and Planning Bureau, Water Affairs Bureau, etc., to be responsible according to their respective duties)
6. Strengthen “Low-Altitude +” Public Safety Governance. Explore the implementation of low-altitude policing pilot programs, promote the integration of drones and manned aircraft, and advance the systematic development, standardized operation, and intelligent application of police drones.Enhance application in scenarios such as incident response, traffic management, public order control, stability maintenance and security, criminal investigation, and emergency rescue. Fully integrate and leverage the advantages of police resources, using technology to replace manpower and intelligence to enhance efficiency, thereby creating a new framework characterized by “integrated police and government operations, resource reuse, centralized management, and city-wide service.”Establish and improve the “Sky Net” system for urban low-altitude safety, intensify early warning and control measures against unauthorized flights of civilian unmanned aerial vehicles (UAVs) that disrupt air traffic, cause injuries due to loss of control, or infringe on privacy through covert filming, and better safeguard public safety in low-altitude airspace. Building on the city’s status as a regional hub, accelerate the application for qualifications to train police drone pilots, strengthen cooperation with universities and professional training institutions, and establish high-quality practical training bases for police drones to foster the development of drone talent. (Lead Agency: Municipal Public Security Bureau)
7. Expand “Low-Altitude+” education and training services. Leverage the advantages of general aviation airports in aviation and drone training to broaden “Low-Altitude+” education and training.Focusing on the significant development opportunities arising from the shortage of low-altitude professionals, we will promote the integrated development of industry, academia, and research. We will conduct training for drone industry certifications such as the CAAC (Civilian Drone Operator License), ALPA (Civilian Drone Operator Application Certificate), and ASFC (Remote-Controlled Model Aircraft Pilot License), establish a high-standard drone training and examination base, and create test flight training sites for various aircraft types, including multirotors, fixed-wing aircraft, and racing drones.Encourage vocational colleges and professional training institutions to conduct drone-related education and training, and establish aviation industry-education integration bases. Encourage low-altitude economy enterprises to actively build science popularization and education exhibition halls in industrial parks and public spaces, promote the development of intelligent scenarios such as AR/VR low-altitude experiences, cultivate low-altitude technology literacy among youth, and showcase the cutting-edge achievements of Xuzhou’s low-altitude industry. (Lead Agencies: Municipal Transportation Bureau, Education Bureau, Science and Technology Bureau)
8. Deepen the application of “Low-Altitude +” high-precision surveying and mapping. Deeply integrate territorial spatial data with the City Information Model (CIM), continuously optimize the 3D real-world data of Xuzhou, and systematically advance the construction of a digital twin system for low-altitude airspace. Promote cross-regional and cross-departmental data sharing to gradually establish a digital foundation for low-altitude operations.Focusing on advancing the application of low-altitude flight in engineering surveying, land and resources surveying, and the monitoring and maintenance of critical infrastructure, we will plan and launch a series of high-quality, efficient solutions to facilitate multi-precision measurement and multi-dimensional data collection. We will expand the scenario-based application of drones in land use change surveys, mine geological monitoring, and farmland protection. (Lead Agencies: Municipal Bureau of Natural Resources and Planning, Municipal Bureau of Housing and Urban-Rural Development, Xuzhou Transportation Control Group)
9. Expand “Low-Altitude +” intelligent inspection scenarios. Focusing on key areas such as transportation inspections, street management, facility maintenance, fire safety inspections, forest fire prevention patrols, and power line inspections, explore a “multi-purpose, integrated flight” model to facilitate the real-time identification and resolution of safety hazards.Actively explore “comprehensive application” business models to promote “single-flight, multi-task execution,” achieving intelligent image capture, classification, structural modeling, and operational tracking analysis. This will support low-altitude applications across multiple sectors, reduce inspection costs, and enhance inspection efficiency and accuracy. (Lead Agencies: Municipal Transportation Bureau, Urban Management Bureau, Fire Rescue Detachment; Responsible Units: State Grid Xuzhou Power Supply Company, Municipal Transportation Control Group, etc., to be responsible according to their respective duties)
10. Explore “Low-Altitude +” unmanned aviation applications. Establish and improve flight and safety management standards for urban air mobility. Pilot demonstrations of manned unmanned aerial vehicle (UAV) flights and practical explorations of “air taxis.” Leveraging the development of the Xuzhou Metropolitan Area, and subject to completing approval procedures and ensuring safety, support the active expansion of air transportation services such as connecting flights, intra-city commuting, inter-city flights, and cross-city flights to facilitate the diversified and multimodal development of low-altitude travel.Encourage various districts to build unmanned aerial vehicle industrial parks tailored to the characteristics of their respective zones, increase efforts to attract and establish high-quality projects, and explore integrated development with emerging industries such as high-end equipment and artificial intelligence by leveraging next-generation information technology, thereby creating “Low-Altitude +” unmanned aerial vehicle demonstration scenarios. (Lead Agencies: Municipal Transportation Bureau, Municipal Bureau of Industry and Information Technology, Municipal Commerce Bureau; Responsible Agencies: Municipal Development and Reform Commission, Transportation Control Group, etc., to be responsible according to their respective duties)
11. Build a “Low-Altitude +” Scenario Application Ecosystem. Focus on the in-depth deployment of “Low-Altitude +” scenarios, promote the industrial chain to actively carry out pilot incubation of application scenarios, and develop other application areas on a rolling basis in accordance with local conditions. Attract and cultivate a group of low-altitude product and high-quality service providers, organize high-level supply-demand and business matching activities, and increase the development and opening of low-altitude scenarios.Encourage and guide low-altitude operation enterprises to participate in the development and demonstration of low-altitude scenarios across various regions and industries, explore the establishment of mutually beneficial business models, and create a series of benchmark low-altitude application scenarios and case studies. Support the further planning and expansion of application fields based on strengthened government procurement of services.Explore the establishment of a coordinated mechanism linking the development and opening of low-altitude scenarios, pilot demonstrations, comprehensive applications, and project attraction, using commercial projects to drive breakthroughs in industrial development. Accelerate the recruitment and establishment of talent teams, key enterprises, and innovation service platforms, and foster the development of benchmark scenarios and urban clusters for comprehensive applications. [Lead Agencies: Municipal Development and Reform Commission, Data Bureau, Industry and Information Technology Bureau, Commerce Bureau, Science and Technology Bureau; Responsible Agencies: Municipal Party Committee Organization Department (Talent Office), Municipal Human Resources and Social Security Bureau, etc., to be responsible according to their respective duties]
III. Support Measures
12. Strengthen Organizational Implementation. Establish a municipal-level coordination and promotion mechanism. Relevant departments (units) shall, in accordance with their respective responsibilities, strengthen the implementation of the plan and ensure the provision of necessary resources, focusing on collaborative efforts to implement innovative applications in “Low-Altitude +” scenarios such as logistics, transportation, healthcare, governance, security, tourism, and rescue. Strengthen coordination between the municipal and county levels; relevant municipal departments shall enhance overall guidance to promote the sustainable and healthy development of the low-altitude economy.(Responsibility lies with the Municipal Bureau of Data, the Development and Reform Commission, the Bureau of Transportation, the Municipal Bureau of Culture, Radio, Television, and Tourism, and other relevant departments according to their respective duties)
13. Strengthen Pilot Demonstrations. Launch pilot projects for the low-altitude economy by selecting 3–5 counties or districts with strong development foundations across the city. In collaboration with key enterprises both within and outside the city, conduct pilot demonstrations in priority areas such as drone logistics and delivery, low-altitude public services, cultural, sports, and tourism consumption, public safety governance, and emergency rescue services. These initiatives will serve as pioneering explorations and exemplary models for the city’s low-altitude economic development.Relevant municipal departments shall actively assist in preparing applications for national and provincial pilot programs. Counties (cities, districts) are encouraged to actively apply for provincial-level demonstration status, generating a body of replicable and scalable achievements and best practices in low-altitude application scenarios. (Responsibility lies with relevant departments including the Municipal Transportation Bureau, Culture, Radio, Television, and Tourism Bureau, Development and Reform Commission, Data Bureau, Commerce Bureau, Public Security Bureau, Emergency Management Bureau, and Fire and Rescue Detachment, in accordance with their respective duties)
14. Strengthen Policy Support. Fully leverage the incentive and guiding role of fiscal funds, establish a linkage mechanism between government investment funds and state-owned enterprise investment funds, and encourage enterprises and projects in the low-altitude economy sector to develop vigorously and create demonstration application scenarios, providing support in accordance with relevant policies. Encourage all sectors to strengthen the provision of key resources and guide social capital to participate in the construction and operation of the low-altitude economy. (The Municipal Bureau of Data, Finance Bureau, Development and Reform Commission, Industry and Information Technology Bureau, State-owned Assets Supervision and Administration Commission, Transportation Bureau, and other relevant departments shall be responsible according to their respective duties)
15. Strengthen safety management. Uphold the principle of safety first, enhance joint supervision of low-altitude flights across departments and sectors, and strengthen standardized management of the design, production, and import of low-altitude aircraft. Establish and improve risk prevention mechanisms, handle illegal and non-compliant flight activities in accordance with the law, maintain social order and stability, and ensure air defense security, public safety, and flight safety. (Responsibility lies with the Municipal Public Security Bureau, Transportation Bureau, Industry and Information Technology Bureau, Market Regulation Bureau, Development and Reform Commission, Justice Bureau, Xuzhou Customs, and other relevant departments in accordance with their respective duties)
16. Strengthen industry standards. Strictly enforce existing standards and regulations in low-altitude economy-related fields. Encourage relevant industry departments to actively explore the formulation of local standards for low-altitude applications and support services in line with development needs, thereby promoting the healthy and sustainable development of the low-altitude economy. Actively organize various exchange and observation activities to promote the replication of exemplary practices across multiple regions following the model of “innovation in one place, replication in many,” and foster a favorable ecosystem supporting the development of “Low-Altitude+” application scenarios. (Responsibility lies with relevant municipal departments and units according to their respective duties)
