Original Title: Policy Interpretation of the "Shanghai Action Plan for High-Quality Development of the Low-Altitude Economy Industry (2024–2027)"
To implement the strategies for building a manufacturing powerhouse and a transportation powerhouse, seize strategic opportunities for the innovative development of the global low-altitude economy, foster new business models in the low-altitude economy industry, vigorously advance new industrialization, and cultivate and develop new-quality productive forces, the Municipality has formulated the "Shanghai Action Plan for High-Quality Development of the Low-Altitude Economy Industry (2024–2027)" (hereinafter referred to as the "Action Plan"). The general considerations and main contents of the Action Plan are interpreted as follows:
I. Background and General Considerations
Shanghai leverages its strong foundation in the civil aviation industry to accelerate the development and layout of the low-altitude economy. Leading enterprises are relatively concentrated here, with eVTOL innovation companies accounting for approximately 50% of the national total. The city serves as a pioneer in unmanned aerial vehicle (UAV) testing. The Jinshan East China UAV Base is among the nation’s first “Civil Unmanned Aerial Vehicle Test Zones” (island scenario). Application scenarios are gradually deepening.The Jinshan-Zhoushan-Longhua Airport is conducting logistics operations in sea-shore-city scenarios, while Yangpu District and other areas are implementing drone food delivery services, and pilot cross-regional routes in the Yangtze River Delta have been launched.
The Action Plan highlights three key considerations: First, focusing on seizing new growth opportunities. In line with the relevant deployments outlined in the State Council’s Government Work Report, we will seize new opportunities in the low-altitude economy sector, cultivate new drivers of economic growth, and further shape the “catalytic hub” for new-quality productive forces in Shanghai as a megacity.Second, it focuses on developing new industries. By leveraging the spillover effects of Shanghai’s large aircraft industry, the plan innovatively develops new low-altitude economy sectors, builds integrated industrial, talent, and service chains, and further consolidates Shanghai’s leading position as China’s “Number One City” in the civil aviation industry. Third, it focuses on building a new industrial ecosystem. The plan aims to develop flagship products for new low-altitude aircraft, enhance airworthiness certification capabilities, accelerate commercial-scale applications, and establish a comprehensive industrial ecosystem, thereby further enhancing the core competitiveness of Shanghai’s modern industrial system.
II. Main Content
The Action Plan consists of three parts: first, the main objectives; second, 23 key tasks across six areas; and third, supporting measures.
(1) Main Objectives
By 2027, Shanghai will establish a complete industrial system covering the R&D, design, assembly, manufacturing, airworthiness testing, and commercial application of new low-altitude aircraft. It will build itself into a hub for innovation, commercial application, and operational services in the low-altitude economy, with the core industry reaching a scale of over 50 billion yuan, placing it at the forefront of global innovation and development in the low-altitude economy.In collaboration with cities in the Yangtze River Delta, Shanghai will build the nation’s first group of interprovincial low-altitude general aviation cities, establish a comprehensive national demonstration and leadership zone for the low-altitude economy industry, and accelerate the development of an “City in the Sky” with international influence.
(2) Key Tasks
First, the Leading Enterprise Cultivation Initiative, which proposes four tasks: Cultivate leading enterprises in electric vertical takeoff and landing (eVTOL) aircraft, with a focus on developing 4- to 6-seat passenger eVTOLs. Cultivate leading enterprises in industrial-grade drones, supporting the development of medium- to long-range, high-payload low-altitude logistics drones.Foster leading enterprises in new energy general aviation aircraft, supporting the development of new energy general aviation aircraft with 19 seats or fewer. Foster leading enterprises in operational services, supporting companies in applying for civil unmanned aircraft system (UAS) operation certificates and accelerating the launch of low-altitude flight operations.
Second is the Key Supporting Infrastructure Initiative, which proposes three tasks: Enhance advanced power systems by supporting the industrialization of key components such as aviation batteries and electric drive systems. Develop networked communication and navigation infrastructure by supporting the R&D of networked communication link terminals to enable ground communication stations to track and monitor aircraft. Strengthen key system support by innovatively integrating new technologies such as artificial intelligence (large models) and spatial positioning to accelerate the industrialization of critical systems like flight control and avionics.
Third, the Infrastructure Construction Initiative proposes four tasks: Accelerate the construction of an “infrastructure network” by expediting the development of large, medium, and small-scale takeoff and landing facilities as well as energy infrastructure, and study the planning of general aviation airports in Jinshan and Qingpu districts.Accelerate the construction of the “Air Network”: promote the sharing and joint use of facilities such as communication and navigation system base stations, and build data storage facilities. Accelerate the construction of the “Air Route Network”: establish a low-altitude air traffic network linking the five new cities, Hongqiao and Pudong International Airports, and surrounding cities in the Yangtze River Delta. Accelerate the construction of the “Service Network”: establish a collaborative management mechanism for military, civilian, and regional low-altitude flights, and build a municipal-level integrated platform for comprehensive supervision, management, and services of unmanned aerial vehicles (UAVs) as well as a flight service center.
Fourth is the Spatial Platform Development Initiative, which proposes three tasks: building specialized low-altitude economy parks to support Jinshan District, Qingpu District, and others in establishing full-industry-chain specialized industrial parks; creating low-altitude economy headquarters clusters to support areas such as the Hongqiao Business District in attracting the headquarters of innovative and operational enterprises, thereby leveraging the radiating and driving role of regional hubs; and establishing R&D and innovation service platforms to actively build municipal or national-level manufacturing innovation centers, generic technology platforms, and technology enterprise incubators.
Fifth is the Management and Service Enhancement Initiative, which proposes four tasks: Enhancing airworthiness certification capabilities by strengthening the development of specialized professional teams and establishing research institutions for new aircraft airworthiness certification. Improving inspection and testing capabilities by building laboratories related to airworthiness certification and airworthiness safety capability assessment, including those for communications and data links. Establishing a safety supervision system to implement standardized management across production, airworthiness, and operations, and strengthening low-altitude flight supervision.Expand the industry’s influence by hosting international low-altitude economy exhibitions, conferences, and exchange platforms.
Sixth is the Commercial Application Promotion Initiative, which proposes five tasks: For logistics and transportation, support the development of island logistics and smart last-mile delivery, and systematically roll out commercial applications for logistics and distribution in commercial districts, campuses, industrial parks, and residential communities. For emergency rescue, implement rapid transport of medical supplies and the swift transfer of patients, and comprehensively improve the emergency rescue system. For low-altitude cultural and tourism, create aerial corridors for cultural and tourism activities along scenic waterways and other areas, and launch commercial passenger sightseeing experiences.Smart City Scenarios: Implement applications for ecological and environmental monitoring, urban safety, and traffic law enforcement. Passenger Transportation Scenarios: Gradually launch demonstration applications for passenger air transportation between Jinshan District, the five new towns, and cities within the Yangtze River Delta region.
(3) Support Measures
Strengthen coordination and collaboration. Fully leverage the mechanism for high-quality development of the manufacturing sector, facilitate the linkage mechanism among military, civilian, and local entities, expand low-altitude airspace, coordinate major matters, refine the division of responsibilities, and form a synergistic effort. Clarify primary responsibilities. Municipal and district authorities will enhance coordination and increase support in terms of industrial policies, special funds, office space, construction land, and other essential resources to promote industrial clustering and development. Third, strengthen financial support.Increase support from the municipal industrial transformation and upgrading fund, attract active participation from social and state-owned capital, and cover the equity financing needs of innovative enterprises throughout their entire lifecycle. Fourth, strengthen talent recruitment and cultivation. Cultivate a tiered talent pool in areas such as cutting-edge technology R&D and design, airworthiness certification, flight management, and operational services.
Moving forward, relevant municipal and district departments will, in accordance with the Action Plan, strengthen overall coordination, enhance collaboration between the municipal and district levels, implement task assignments, intensify publicity efforts, and optimize the business environment. We aim to cultivate a group of leading enterprises and supporting businesses, strive to take the lead in the global innovation and development of the low-altitude economy, and accelerate the construction of a “City in the Sky” with global influence.
